[Federal Register: March 4, 2008 (Volume 73, Number 43)]
[Notices]
[Page 11695-11697]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr04mr08-117]
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DEPARTMENT OF TRANSPORTATION
Pipeline and Hazardous Materials Safety Administration
[Docket No. PHMSA-RSPA-2004-19856]
Pipeline Safety: Issues Related to Mechanical Couplings Used in
Natural Gas Distribution Systems
AGENCY: Pipeline and Hazardous Materials Safety Administration (PHMSA),
DOT.
ACTION: Notice; issuance of advisory bulletin.
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SUMMARY: Recent events concerning failures of mechanical couplings and
related appurtenances have raised concerns about safety in natural gas
distribution systems. This notice updates information provided in
Advisory Bulletin ADB-86-02 and advises owners and operators of gas
pipelines to consider the potential failure modes for mechanical
couplings used for joining and pressure sealing two pipes together.
Failures can occur when there is inadequate restraint for the potential
stresses on the two pipes, when the couplings are incorrectly installed
or supported, or when the coupling components such as elastomers
degrade over time. In addition, inadequate leak surveys which fail to
identify leaks requiring immediate repair can lead to more serious
incidents. This notice urges operators to review their procedures for
using mechanical couplings and ensure coupling design, installation
procedures, leak survey procedures, and personnel qualifications meet
Federal requirements. Operators should work with Federal and State
pipeline safety representatives, manufacturers, and industry partners
to determine how best to resolve potential issues in their respective
state or region. Documented repair or replacement programs may prove
beneficial to all stakeholders involved.
FOR FURTHER INFORMATION CONTACT: Richard Sanders at (405) 954-7214, or
by e-mail at richard.sanders@dot.gov; or Max Kieba at (202) 493-0595,
or by e-mail at max.kieba@dot.gov.
SUPPLEMENTARY INFORMATION:
[[Page 11696]]
I. Background
Mechanical couplings are fittings used for joining and pressure
sealing two pipes together. Other methods of joining pipe include
welding for steel and heat fusion for plastic. There have been
improvements in materials and manufacturing methods over the years, but
the basic design concept has not changed. Most couplings rely on
elastomers and compression as sealing mechanisms. Couplings appear in a
variety of configurations: Straight or inline couplings, elbows (45 or
90 degree), tees, reducing couplings (for joining pipes of different
diameters), and couplings integrated with risers. A variety of gaskets
and sleeves also exist. Properly installed and supported, couplings
successfully connect steel, cast iron, copper, and plastic pipes.
However, there is also a history of significant incidents related to
coupling failures.
Advisory Bulletin ADB-86-02, issued February 26, 1986, informed
natural gas pipeline operators to review procedures for using
mechanical couplings and ensure coupling design, procedures, and
personnel qualifications meet 49 CFR part 192 requirements. ADB-86-02
is posted on PHMSA's Web site and in Docket ID PHMSA-RSPA-2004-19856.
The bulletin discussed pipeline failures that had been attributed to
temperature-related contraction of the plastic pipe and the inadequate
restraint capabilities of mechanical couplings.
Additionally, the National Transportation Safety Board (NTSB)
issued a Pipeline Accident Report titled ``National Fuel Gas Company,
Natural Gas Explosion and Fire, Sharpsville, Pennsylvania, February 22,
1985'' (NTSB/PAR-85/02). The factors involved in the Sharpsville
incident were similar to those of several other incidents reported to
PHMSA's Office of Pipeline Safety. As documented in the NTSB report,
the cyclic effects of temperature-related contraction and expansion on
plastic pipe in an improperly designed mechanical joint can be
cumulative and lead to a failure even after several years of
satisfactory service.
A number of incidents have occurred since issuance of ADB-86-02.
PHMSA searched 3,417 gas distribution incident reports submitted to the
agency since 1984, and identified 274 incidents that could potentially
include coupling or fitting failures. After closer examination of the
incident detail, PHMSA determined 148 of those incidents more reliably
appear to be coupling or fitting failures on steel or plastic pipe.
Although this accounts for only four to eight percent of all
distribution incidents reported to PHMSA, the significant incidents
within that data, as well as the potential for additional significant
incidents, should not be ignored. Significant incidents include the
following: a failure in Buffalo, Minnesota on February 19, 2004 that
resulted in significant property damage; a failure in Ramsey, Minnesota
on December 28, 2004 that resulted in three fatalities and one serious
injury; and, a failure in Wylie, Texas on October 16, 2006 that
resulted in two fatalities.
It is important to note that this data only includes incidents that
were reportable to PHMSA. These numbers could be much greater if they
included incidents that were reported at the State level.
In addition to these incidents, a number of other issues have been
cited:
In 1993, the New York State Public Service Commission (NY
PSC) concluded an investigation concerning the increased incidence of
leaks attributed to gaskets and gas quality in a coupled steel natural
gas distribution system on Long Island.
In 2005, Washington Gas Company issued a report on the
increased incidence of natural gas leaks attributed to gaskets and gas
quality on mechanically coupled steel pipe in a major portion of its
distribution system.
In 2005, the Public Utilities Commission of Ohio (PUCO)
opened a statewide investigation due to a series of natural gas
incidents reported to PUCO by local distribution companies involving
risers, the vertical portions of the service lines that connect the
distribution systems to customers' meters. In addition to four
reportable incidents, a number of ``non-incident'' riser failures were
also reported to the staff. The PUCO opened a case to examine riser
types, reviewing installation and overall performance because of the
potential risk posed by risers as links between the gas distribution
service lines and meters, located near or within a customer's premises.
In addition to the 2004 incidents in Minnesota already
discussed, two other incidents occurred in the State. After the first
incident, Minnesota's Office of Pipeline Safety began to review the
couplings installed in the system in question. The second incident
occurred while the study was being conducted.
Between 1980 and 2007, seven incidents occurred in Texas. These are
outlined in a February 2008 Railroad Commission of Texas report titled
``Study Report on Compression Type Couplings.'' (http://
www.rrc.state.tx.us/divisions/gs/pls/TXcouplingrpt.pdf)
These incidents involve a variety of types and sections of
couplings or risers. For example, the issues surrounding the Ohio
couplings were slightly different than the Texas couplings. Both were
related to risers, but the Ohio issues involved the compression
mechanisms located aboveground on the risers that connect meter
settings to underground service lines. The couplings in Texas have been
located on the ends of service risers where service lines connect to
risers. While some incidents in question were reportable to PHMSA and
investigated by PHMSA, those that were not were investigated by the
relevant State pipeline safety agency. This notice does not focus on a
particular State, operator, or type of coupling. Rather, it intends to
provide generally applicable advice on incidents affecting multiple
stakeholders and systems throughout the country.
Although a number of variables exist, the safety problem appears to
involve two predominant failure modes. First, in the cases involving
pullout of pipe, often plastic, from compression couplings, an
additional and perhaps unique factor produced the pullout forces. These
additional factors could include cyclic fatigue from changing of the
seasons (especially in northern climates), or soil shifting by other
means (ground movement from earthquakes or after heavy rains). Improper
installation (most couplings currently come with product warnings) or
old age (parts of the coupling deteriorating) could also have
contributed to the pullout. Some studies found couplings that were
installed with components that differed from the original manufacturer
specifications, modified prior to installation, or missing parts
entirely. As another example of incorrect application, the coupling
involved in the Ramsey, Minnesota incident was designed to be used on
steel pipe, not plastic, and had a service tee welded to it contrary to
manufacturer's recommendations. The common factor in all incidents
involving pullout is that the compression fitting did not have adequate
restraint to assure safety under service conditions. In some cases, the
coupling failed after many years of successful service.
The second failure mode involves leakage through the sealing
surface between the coupling and the pipe. This occurred when the
integrity of long-term viscous and elastic effects of the seals
degraded which eventually caused a leak path to develop. In some cases,
a change in the gas quality in the distribution system may have
contributed to the failure.
[[Page 11697]]
Other contributing factors can also lead to incidents. These
factors include leak surveys conducted in conditions that prevent gas
from properly migrating to the surface, such as after heavy rains or
certain soil and surface features. Some incidents indicated leak
surveys involving equipment not calibrated properly or not appropriate
for the intended use, or personnel not sufficiently trained. If an
operator is doing proper leak surveys at regular intervals, an operator
can usually detect a leak early, fix the source of the leak, and
prevent an incident. There have, however, been cases where a leak
survey, using properly calibrated equipment showing no problems, was
followed by an incident involving sudden pullout only weeks later.
Follow-up has already occurred with some of the incidents mentioned
in this bulletin:
The NY PSC and the operator agreed to a replacement
program involving approximately 45,000 natural gas service lines
equipped with couplings.
In Ohio, nearly 500,000 risers were identified by the
PUCO's study as prone to failure. Currently, the PUCO is working with
the operators who have these risers and the Ohio Consumers' Counsel to
set up replacement schedules and address costs.
In May 2005, Minnesota's Office of Pipeline Safety issued
a compliance order to an operator to replace service lines installed
prior to January 1, 1984, or visually inspect the entire service line
to verify it contains only mechanical fittings that comply with 49 CFR
192.283(b). Any mechanical fittings identified that did not meet the
requirements were required to be replaced.
The Railroad Commission of Texas has required operators to
replace, within a 2-year period, 97,000 remaining old mechanical
couplings that have been in service for some 28 to 30 years. In
addition, the Railroad Commission of Texas has adopted mandatory
replacement programs in an effort to remove compression couplings found
leaking on both steel and plastic pipe that are susceptible to pullout.
A number of other studies, tests, and repair or replacement
programs, some of them voluntary, have been conducted in other States.
II. Advisory Bulletin (ADB-08-02)
To: All Gas Distribution Operators.
Subject: Identifying Issues with Mechanical Coupling That Could
Lead to Failure.
Advisory: Due to variables related to age of couplings, specific
procedures and installation practices, and conditions specific to
certain regions of the country, it is difficult to cite common criteria
affecting all failures that operators should address. However, PHMSA
advises operators of gas distribution pipelines using mechanical
couplings to do the following to ensure compliance with 49 CFR part
192:
(1) Review procedures for using mechanical couplings, including the
coupling design and installation and ensure that they meet
manufacturer's recommendations;
(2) Review leak survey procedures to ensure that leak surveys are
properly conducted, taking into account other contributing factors
(i.e., weather conditions, calibration); and,
(3) Review personnel qualifications to ensure they address leak
surveys sufficiently.
PHMSA also advises operators of gas distribution pipelines using
mechanical couplings to consider taking the following measures to
reduce the risk of failures of mechanical couplings:
(4) Use Category 1 fittings only if mechanical couplings are used
on pipe sizes \1/2\' CTS (Copper Tube Size) to 2' IPS (Iron Pipe Size).
Per ASTM D2513-99 titled ``Standard Specification for Thermoplastic Gas
Pressure Pipe, Tubing and Fittings,'' Category 1 is a mechanical joint
design that provides a seal plus a resistance to a force on the pipe
end equal to or greater than that which will cause a permanent
deformation of the pipe. At this time there is insufficient data to
indicate there are issues involving fittings for larger diameter pipe.
PHMSA will revisit if such issues do arise with larger diameter pipe.
(5) Improve recordkeeping on specific couplings that exist, i.e.,
their type, installation date, maintenance schedule, and any failures
encountered, to help identify a trend of problems that may occur with a
specific coupling or type of installation.
(6) Consider whether to adopt a full replacement program if there
are too many unknowns related to couplings in service.
(7) Work with Federal and State pipeline safety representatives,
manufacturers, and industry partners to determine how best to resolve
potential issues in their respective state or region.
Documented repair and replacement programs may prove beneficial to
all stakeholders involved. If operators are unsure of the appropriate
representative, contact the individual(s) listed in this advisory
bulletin for further information.
Issued in Washington, DC, on February 28, 2008.
Jeffrey D. Wiese,
Associate Administrator for Pipeline Safety.
[FR Doc. E8-4155 Filed 3-3-08; 8:45 am]
BILLING CODE 4910-60-P