Guide for Communicating Emergency Response Information for Natural Gas and Hazardous Liquids Pipelines (2014)

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1 Guide for Communicating Emergency Response Information for Natural Gas and Hazardous Liquids Pipelines Analysis of major pipeline incidents suggests a recurring challenge in communication between emergency responders and pipeline operators. In some cases, critical information such as determining the presence of pipelines or identification of the pipeline owners took considerable time. These delays contributed to greater damage as a consequence of these incidents. HMCRP Report 14: Guide for Communicating Emergency Response Information for Nat- ural Gas and Hazardous Liquids Pipelines (the guide) is designed for use as a pre-incident planning tool for both pipeline operators and public safety agencies, such as fire depart- ments, law enforcement, and emergency management agencies. It is intended to provide information to assist all parties in identifying information needs and the means for com- municating this information. The reader should consider incorporating this information into emergency operations plans. The research team consulted researchers and practi- tioners with considerable experience pertaining to each element of the project including pipeline emergency response. Findings in the guide are the result of several steps. The first was review of national and state regulation, industry best practices, and pipeline incident reports from the National Transportation Safety Board (NTSB). Next, there was a series of workshops held with diverse stakeholder participants representing pipeline operators, public safety, and envi- ronmental protection or regulatory officials at the state and federal levels. These work- shops were designed to identify information needs of various stakeholders, and identify challenges to effective communication. Based on data obtained in the workshops, a group of experts, representing these same constituencies, completed a Failure Modes and Effects Analysis (FMEA). This analysis identified information needs in the early stages of a pipe- line emergency as well as criticality of the information and likelihood that it would be transmitted effectively. The guide uses a role-based approach for understanding information needs and flows. Functions are associated with specific roles. This approach recognizes the reality that mul- tiple organizations collaborate in pipeline emergency response, and may fulfill multiple or differing functions at a pipeline emergency. The time of notification, magnitude of the incident, and cause of the incident can all affect the information flows and their specific requirements. The research team defined key roles and identified organizations that com- monly fulfill those roles. The vast geographic coverage of pipelines, and the complex nature of local emergency response organizations makes outreach and maintenance of contact difficult. Public safety 9-1-1 dispatch centers (known as Public Safety Answering Points ([PSAPs]) play a crucial S U M M A R Y

2role that should not be overlooked. These centers can serve as institutional memory for criti- cal communication procedures, and are often the first step in recognizing potential pipeline involvement in reports of unusual conditions from the public. Both pipeline operators and local emergency responders must work together to ensure that communication is a primary component of pre-incident plans. Preparedness begins with the public emergency responder identifying pipeline operators with facilities in his/ her service areas. With this information, and an understanding of common challenges and experience of past incidents, key parties can improve readiness for an incident, and improve the ability to respond in a timely and effective manner. This guide includes federal emer- gency planning guidance on integrating pipeline emergency communications into larger emergency operations plans and incident management frameworks. The Hazardous Materials Cooperative Research Program (HMCRP) conducted the project with funding provided by the U.S. Department of Transportation’s (DOT’s) Pipeline and Hazardous Materials Safety Administration (PHMSA). This guide is one of four products of the project. The other three products are Appendix 1: Contractor’s Final Report for HMCRP Project 15; Appendix 2: Summary of Current Federal, State, and Representative Local and Tribal Regulations and Ordinances Governing Emergency Response Plans for Natural Gas and Hazardous Liquids Pipelines; and Appendix 3: Review and Summary of Voluntary Con- sensus Standards for Best Practices Related to Communicating Emergency Response Plans and Their Effectiveness. These appendices can be found online at www.trb.org by searching for HMCRP Report 14.