[Federal Register: January 6, 2006 (Volume 71, Number 4)]
[Notices]
[Page 977-979]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr06ja06-81]
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DEPARTMENT OF TRANSPORTATION
Pipeline and Hazardous Materials Safety Administration
[Docket No. PHMSA-05-23447]
Pipeline Safety: Reconsideration of Natural Gas Pipeline Maximum
Allowable Operating Pressure for Class Locations
AGENCY: Pipeline and Hazardous Materials Safety Administration, DOT.
ACTION: Notice of meeting; call for papers.
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SUMMARY: On March 21, 2006, the Pipeline and Hazardous Materials Safety
Administration (PHMSA) will hold a public meeting to discuss raising
the allowable operating pressure on certain natural gas transmission
pipelines. Pipelines are the energy highways of the Nation that provide
the most efficient means to transport vast volumes of natural gas on
which we depend. Raising the maximum allowable operating pressures
(MAOP) for natural gas pipelines would allow more gas to flow through
these pipelines. This notice is designed to announce a public meeting
and to invite papers on relevant technical subjects.
Over the past 20 years, there has been a drastic improvement in
technology pertaining to materials, metallurgy, controls, operations,
and maintenance of the pipeline network. Based on these and other
advances, PHMSA believes that certain pipelines in certain locations
could be safely and reliably operated above the operating pressure
established in current Federal pipeline safety regulation.
There are three categories of pipelines that could realize an
immediate benefit from such an increase in the MAOP: the proposed
Alaska Natural Gas Transmission System; new natural gas pipelines that
are being certificated by the Federal Energy Regulatory Commission; and
pipelines constructed since 1980 with line pipe of known metallurgical
and mechanical properties.
This meeting provides the pipeline industry, Federal and State
regulators, and interested members of the public an opportunity to
share their knowledge and experience about the impact of increasing the
MAOP to increase pipeline efficiency. Individuals that would like to
make presentations should notify the individual listed under FOR
FURTHER INFORMATION CONTACT by February 7, 2006, and submit papers at
this meeting.
ADDRESSES: The March 21, 2006, meeting will be held at the Hyatt
Regency Reston Hotel, 1800 Presidents Street, Reston, VA 20190. The
telephone number for reservations at the Hyatt Regency Reston Hotel is
(703) 709-1234. The hotel will post the particular meeting room the day
of the meeting.
FOR FURTHER INFORMATION CONTACT: Mr. Joy Kadnar, Director, Engineering
and Emergency Support at (202) 366-4595 or joy.kadnar@dot.gov about the
subject matter in this notice.
SUPPLEMENTARY INFORMATION:
Introduction
Pipeline operators continually explore ways to reduce the cost of
new pipelines, or increase the efficiency of existing pipelines,
without affecting reliability and safety. One way to achieve cost
reductions is to use high-grade line pipe and employ new welding
methods. Another method to increase cost-effectiveness and to make the
pipeline more efficient is to operate pipelines at higher stress
levels.
International pipeline regulations generally limit design stresses
to 72% specified minimum yield strength (SMYS). Under highly selective
conditions, some pipelines in the United States and Canada operate at
hoop stresses up to 80% SMYS. Notwithstanding, the current United
States Code of Federal Pipeline Safety Regulations (CFR) (49 CFR part
192) limits the stress to 72% SMYS for Class 1 locations, while Canada
limits it to 80%. There are a lot of other countries considering
operating at higher levels. Therefore, PHMSA believes it is appropriate
to explore the reliability and integrity implications of operating
pipelines at stress levels above 72%
[[Page 978]]
SMYS, but not to exceed 80% SMYS for Class 1 locations.
The benefits of an increase in MAOP for natural gas pipelines are
tremendous, mainly because of the increase in capacity and fuel
efficiency. For new pipelines operated at a higher MAOP, operators
might realize an initial cost savings, primarily in materials. A
capacity increase in existing pipelines will have an auxiliary benefit
by avoiding the construction of new pipelines or costly modifications
that have the potential to damage the environment. Historical problems
associated with seam failures are non-existent with new materials. Most
new pipelines have been configured to accept inline inspection tools to
monitor the pipeline's condition. Pipeline operators have improved
their ability to manage internal corrosion. By allowing pipeline
companies to safely increase the MAOP of existing pipelines that meet
certain criteria, they could avoid new construction that can impact the
environment.
Research by the Pipeline Research Council International concluded
that pipeline operations can be safe and reliable at stress levels of
up to 80% SMYS if the pipeline has well-established metallurgical
properties and can be managed to protect it against known threats, such
as corrosion and mechanical damage. Additionally, independent studies
demonstrate the benefits of risk and reliability-based principles that
strengthen safety.
Background
The class location regulations require that pipelines routed
through areas with higher local population density operate at lower
pressures. This is intended to provide an extra safety margin in those
areas.
The gas transmission integrity management program addresses
protections in high consequence areas. The cost-benefit analysis
included in the final rule noted that a significant benefit to
implementing integrity management is reduced cost to the pipeline
industry for ensuring safety in populated areas along pipelines.
Improved knowledge of pipeline integrity provides a technical basis for
considering alternatives to regulation, for example whether to replace
pipe or to reduce operating stresses in pipelines when population near
them increases, (i.e., when the class location increases to either
Class 2 from Class 1 or to Class 3 from Class 2). A class location
change results from new construction near a pipeline segment and unless
a waiver is granted triggers a requirement that the MAOP be confirmed
or revised.
On June 24, 2004, PHMSA issued criteria for granting class location
waivers based on integrity management principles. The criteria provide
information and guidance to pipeline operators concerning the specific
pipe design and operating parameters within which PHMSA is likely to
consider a class location waiver application to be consistent with
pipeline safety. Class location waivers that are granted allow a
pipeline operator to perform alternative risk control activities based
on the principles and requirements of the integrity management program
in lieu of pipe replacement or pressure reduction. These waivers allow
operators to continue to operate pipelines at existing hoop stresses
although the MAOP is no longer commensurate with the class location
requirements.
Specified Minimum Yield Strength
In the early 1950s, the American Standards Association's (ASA)
pipeline committee developed ASA Standard B31.8 and the concept of
basing design stress on a percentage of the specified minimum yield
strength (SMYS). The committee determined that 72% SMYS was an
acceptable design factor. Thereafter, PHMSA incorporated this standard
by reference into its pipeline regulations. In the late 1980s, ASME
International (ASME) revisited the SMYS issue and determined that
pipelines could operate safely at up to 80% SMYS. The committee then
modified ASME B31.8 to include that provision.
The United States Federal pipeline safety regulations allow a
maximum operating pressure of 72% SMYS. The Canadian regulations allow
a maximum operating pressure of 80% SMYS. Currently, there are
pipelines in the United States that have been ``grandfathered'' to
operate at an MAOP above 72% SMYS. PHMSA statistics show that these
pipelines have an equivalent safety record when compared with pipelines
that operate according to the design factors in the pipeline safety
regulations. Further, the pipeline safety regulations already allow
pipelines to continue to operate at the original design factor when the
class location increases by one Class, providing certain criteria are
met. For example, a pipeline in a Class 2 location is allowed to
continue operating at 60% of SMYS when it changes to a Class 3.
Preliminary Meeting Agenda
The public meeting will examine policies and technical issues that
are central to understanding and improving pipeline safety. While
providing opportunities for improved efficiency, the meeting will
highlight contributed papers and studies and will provide opportunities
to discuss and exchange views.
The agenda for this meeting will include discussion on:
Existing pipelines operating above 72% SMYS.
Evolution of the 72% SMYS ceiling.
Class Location.
Regulatory Requirements in the United States, Canada, and
the United Kingdom.
Engineering and Technical Considerations for 80% SMYS
Operation.
Waiver requests submitted to PHMSA. See DOT Docket
Numbers: PHMSA-05-23448, and PHMSA-05-23387.
During the meeting, PHMSA would like participants to discuss their
views on the MAOP and any experience they have had operating pipelines
beyond 72% SMYS. PHMSA also would like participants to provide
information on reliability and how moving beyond 72% SMYS would impact
pipeline safety.
Call for Papers
We invite papers to address reasons why PHMSA should or should not
provide relief from the class location requirements to pipelines that
meet certain stringent operating criteria. PHMSA is interested in
engineering and technical considerations. Papers may discuss the impact
on public safety, the environment, the economy, and the State pipeline
programs. All papers, whether presented at the public meeting or not,
will be included in the public docket. PHMSA solicits papers on
relevant policy and technical topics in the following areas:
The impact of operating pipelines at pressures greater
than 72% SMYS.
The impact on pipeline threats at 80% SMYS operation.
The role of ongoing integrity assessment in managing the
safety of pipelines designed to operate at pressures up to 80% SMYS.
The benefits of 80% SMYS operation on natural gas
commodity movements and energy flows.
A qualitative assessment of the pipeline capacity increase
across the grid that could result from such pressure uprating.
A comparison of failure histories, national and
international, of pipelines operating up to 72% SMYS versus those
operating above 72% SMYS.
Regulatory harmonization between the United States and
Canada.
Role of initial hydrostatic testing for initial design
integrity validation.
[[Page 979]]
Review of pipe robustness and resistance to excavation
damage.
Impact on fatigue life of pipelines operating up to 80%
SMYS.
Fracture control design parameters for 80% SMYS operation.
Evaluation of integrity re-assessment intervals for 80%
SMYS operation.
Optimization of conditioning, monitoring, and mitigation
programs for 80% SMYS operation.
Review of existing compressor station equipment relative
to 80% SMYS operation.
Review of operations and controls for 80% SMYS.
Emerging approaches for reliability analysis, integrity
management, and risk analysis in high stress pipelines.
Line pipe characteristics and flaws that preclude
pipelines from higher operating stresses.
Authors must submit abstracts of their papers in 250 words or less
to the docket by February 7, 2006. PHMSA will notify authors by
February 14, 2006, whether their papers were accepted for presentation
at the meeting. Each author of an accepted paper will have the choice
of providing either a short paper (6-10 pages) or an extended abstract
(3-5 pages) that will be due before the public meeting.
You may submit papers or comments by mail or deliver them to the
Dockets Facility, U.S. Department of Transportation, Room PL-401, 400
Seventh Street, SW., Washington, DC 20590-0001. The Dockets Facility is
open from 9 a.m. to 5 p.m., Monday through Friday, except Federal
holidays. You also may submit papers or comments to the docket
electronically by logging onto the following Internet Web address:
http://dms.dot.gov. Click on ``Help & Information'' for instructions on
how to file a document electronically. All papers or comments should
reference docket number PHMSA-05-23447. Anyone who would like
confirmation of mailed papers or comments must include a self-addressed
stamped postcard.
Privacy Act Statement: Anyone may search the electronic form of all
comments received for any of our dockets. You may review DOT's complete
Privacy Act Statement in the Federal Register published on April 11,
2000 (65 FR 19477) or you may visit http://dms.dot.gov.
Information on Services for Individuals With Disabilities: For
information on facilities or services for individuals with
disabilities, or to request special assistance at the meeting, please
contact Cheryl Whetsel at (202) 366-4431 by March 6, 2006.
Authority: 49 U.S.C. 60102 and 60133.
Issued in Washington, DC, on December 30, 2005.
Stacey L. Gerard,
Associate Administrator for Pipeline Safety.
[FR Doc. 06-110 Filed 1-5-06; 8:45 am]
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