97-4614. Liquefied Natural Gas RegulationsMiscellaneous Amendments  

  • [Federal Register Volume 62, Number 37 (Tuesday, February 25, 1997)]
    [Rules and Regulations]
    [Pages 8402-8404]
    From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
    [FR Doc No: 97-4614]
    
    
    =======================================================================
    -----------------------------------------------------------------------
    
    DEPARTMENT OF TRANSPORTATION
    
    Research and Special Programs Administration
    
    49 CFR Part 193
    
    [Docket No. PS-151; Amdt. 193-13]
    RIN 2137-AC 91
    
    
    Liquefied Natural Gas Regulations--Miscellaneous Amendments
    
    AGENCY: Research and Special Programs Administration (RSPA), DOT.
    
    ACTION: Direct final rule.
    
    -----------------------------------------------------------------------
    
    SUMMARY: This direct final rule updates the Liquefied Natural Gas (LNG) 
    regulations by replacing the current ``Flammable vapor-gas dispersion 
    protection'' method with a method based on the ``dense gas dispersion 
    (DEGADIS)'' model, and replacing the current ``Thermal Radiation 
    Protection'' method with a method based on the ``LNGFIRE'' program 
    model. In addition, this final rule incorporates safety requirements 
    for mobile and temporary LNG facilities by referring to the National 
    Fire Protection Association (NFPA) Standard 59A (1996 edition)--
    Standard for the Production, Storage and Handling of Liquefied Natural 
    Gas (LNG).
    
    DATES: This direct final rule takes effect June 25, 1997 unless RSPA 
    receives adverse comments or notice of intent to file adverse comment 
    by April 28, 1997. The incorporation by reference of certain 
    publications listed in the rule is approved by the Director of the 
    Federal Register as of June 25, 1997. If RSPA does not receive any 
    adverse comment or notice of intent to file an adverse comment by April 
    28, 1997 the rule will become effective on the date specified. RSPA 
    will issue a subsequent notice in the Federal Register by May 27, 1997 
    after the close of the comment period to confirm that fact and 
    reiterate the effective date. If an adverse comment or notice of intent 
    to file an adverse comment is received, RSPA will issue a timely notice 
    in the Federal Register to confirm that fact and RSPA would withdraw 
    the direct final rule in whole or in part. RSPA may then incorporate 
    the adverse comment into a subsequent direct final rule or may publish 
    a notice of proposed rulemaking.
    
    ADDRESSES: Written comments must be submitted in duplicate and mailed 
    or hand-delivered to the Dockets Unit, room 8421, U.S. Department of 
    Transportation, Research and Special Programs Administration, 400 
    Seventh Street, SW., Washington, DC 20590. Identify the docket and 
    notice numbers stated in the heading of this notice. All comments and 
    materials cited in this document will be available for inspection and 
    copying in room 8421 between 8:30 a.m. and 4:30 p.m. each business day. 
    Non-federal employee visitors are admitted to the DOT headquarters 
    building through the southwest quadrant entrance at Seventh and E 
    Streets.
    
    FOR FURTHER INFORMATION CONTACT: Mike Israni, (202) 366-4571, regarding 
    the subject matter of this document, or the Dockets Unit (202) 366-
    4453, for copies of this document or other information in the docket.
    
    SUPPLEMENTARY INFORMATION:
    
    Background
    
    Section 193.2019  Mobile and Temporary LNG Facilities
    
        RSPA is amending 49 CFR Part 193 by adding a section 193.2019 on 
    mobile and temporary LNG facilities. Mobile and temporary LNG 
    facilities have a good safety record and their use has become quite 
    common. However, Part 193 currently does not contain requirements for 
    such temporary operations and many temporary operations cannot meet 
    some of the Part 193 requirements. In those cases, operations have been 
    authorized through waivers issued by the relevant states, and approved 
    by RSPA, for mobile and temporary facilities for peakshaving 
    applications, for service maintenance during gas pipeline systems 
    repair/alteration, or for other short term applications. In acting on 
    waiver requests, RSPA reviews justification for not complying with Part 
    193 and requires alternative safety provisions to maintain public 
    safety. There has been no adverse impact on safety as a result of the 
    waiver process and RSPA anticipates an equivalent level of safety 
    following implementation of this direct final rule. The safety 
    guidelines and the restrictions for LNG mobile facilities in section 2-
    3.4 of the NFPA 59A (1996 edition) provide an adequate level of 
    assurance of public safety. The safety guidelines are identical to 
    those required as conditions for waiver. Thus, we do not see any 
    necessity for issuing a proposed rule. Therefore, RSPA is incorporating 
    by reference NFPA 59A section 2-3.4 for mobile and temporary LNG 
    facilities in this direct final rule. Operators will no longer need a 
    waiver from Part 193 requirements for mobile facilities if they comply 
    with section 2-3.4 of NFPA 59A. This will reduce the burden on the 
    industry and state and federal governments without compromising safety.
    
    Section 193.2057  Thermal Radiation Protection
    
        RSPA is amending Section 193.2057, ``Thermal radiation 
    protection'', by deleting the method prescribed and replacing it with a 
    method based on the ``LNGFIRE'' program model developed by the Gas 
    Research Institute (GRI). RSPA is amending this section in response to 
    an American Gas Association (AGA) petition dated October 14, 1992.
        According to the AGA petition, the current method is a simple 
    geometrical method with assumptions of flame radiant properties for 
    computing the radiation from burning vapor above a concentric pool. 
    Flame radiant properties were rationalized to provide results that 
    agree with early experimental results for the lowest level of radiant 
    exposures. The current method also assumes an idealized tilted 
    cylindrical flame. Experimental data shows that the current method 
    underestimates exclusion distances for large pool fires, such as those 
    that could occur in a tank dike, and overestimates exclusion distances 
    for small and high ratio length-to-width rectangular fires that could 
    occur in pipe impoundments.
        AGA states that since 1982 GRI has funded a series of research 
    projects dealing with LNG pool fire radiation. This research has 
    culminated in a model which more accurately reflects experimental data. 
    The research has also produced a personal computer based program called 
    ``LNGFIRE.'' This computer model has numerous advantages over the 
    current method, including the ability to account for a wide variety of 
    containments. The resulting computer program is easy to use and is in 
    the public domain. The results of the model and the ``LNGFIRE'' program 
    correlate very well with experimental results from the numerous
    
    [[Page 8403]]
    
    pool fire tests conducted during the last 15 years.
        AGA further explains that the ``LNGFIRE'' program and model 
    effectively take into account wind speed, relative humidity and 
    asymmetrical pool configuration. One unique feature in the ``LNGFIRE'' 
    program model is the effect called wind drag. This is the tendency of 
    the wind to move the base of the flame down-wind from the pool. The 
    ``LNGFIRE'' program also calculates the heat output of the fire based 
    on the heating value, density and boiling temperature of the LNG. 
    Although average default properties are included in the program, the 
    properties of unusually heavy or light LNG can be substituted to 
    reflect the product used at a particular facility.
        RSPA agrees with the AGA's rationale and is replacing the current 
    thermal radiation protection method with the method based on the 
    ``LNGFIRE'' program model.
    
    Section 193.2059  Flammable Vapor-Gas Dispersion Protection
    
        RSPA is amending section 193.2059, ``Flammable vapor-gas dispersion 
    protection,'' by deleting the prescribed method based on the 
    mathematical model in Appendix B of the AGA's 1974 report, ``Evaluation 
    of LNG Vapor Control Methods,'' also referred to as the Gaussian Line 
    Source (GLS) model, and replacing it with the ``DEGADIS'' dense gas 
    dispersion model. RSPA is amending this section in response to the 
    American Gas Association (AGA) petition dated October 14, 1992.
        According to the AGA petition, the dispersion models available at 
    the time the current federal regulation was issued were limited. Based 
    on the limited vapor dispersion data available in 1980, DOT provided 
    for use of the GLS dispersion model as the method for calculating LNG 
    vapor-gas dispersion siting standards. The GLS dispersion model does 
    not account for important LNG vapor dispersion phenomena, including 
    gravity spreading, negative or positive buoyancy effects on air 
    entrainment, surface-to-cloud heat transfer, or phase change energy 
    effects associated with air humidity.
        AGA states that under GRI sponsorship beginning in 1982, extensive 
    vapor dispersion experimental and analytical work has been conducted. 
    The DEGADIS dispersion model, developed for GRI and the U.S. Coast 
    Guard and recently modified (to allow application to elevated jet 
    releases) for the U.S. Environmental Protection Agency (EPA), accounts 
    for effects described above and can be run on a personal computer.
        AGA further explains that the DEGADIS model has been shown to be 
    consistent with a wide range of laboratory and field test data for 
    dense gas releases on a flat surface with dispersion over unobstructed 
    flat terrain. Comparison of DEGADIS model predictions with data 
    obtained from pertinent vapor dispersion field tests has been reviewed. 
    To provide direct comparison with the GLS model prescribed in 49 CFR 
    193.2059, the maximum predicted distance to 2.5% methane concentration 
    was determined for 324 LNG release scenarios with the DEGADIS and GLS 
    models. DEGADIS generally predicted the longer distances to the 2.5% 
    methane concentration level than the GLS model for ``B'' atmospheric 
    stability and shorter distances than the GLS model for ``F'' stability.
        AGA states that the recommendation for specification of a surface 
    roughness factor of 3 cm in DEGADIS presumes the terrain upwind of the 
    LNG release to be covered with short (order 10 cm) grass. The value of 
    this surface roughness factor is recommended for normal usage to 
    provide consistency with the implicit assignment of 3 cm surface 
    roughness factor in the application of the Guassian model currently 
    prescribed.
        The theoretical and experimental basis for the DEGADIS model are 
    fully reviewed in GRI Report No. 89/0242 and its applicability to LNG 
    vapor dispersion prediction has been considered.
        The results given in the GRI report indicate that the DEGADIS model 
    is superior both in dispersion phenomena and performance to the GLS 
    model promulgated in 49 CFR 193.2059 for LNG vapor dispersion 
    simulation. Availability in IBM-PC formats provides for wide use of the 
    DEGADIS model. The DEGADIS model has been accepted and used by federal 
    agencies such as the Federal Emergency Management Administration 
    (FEMA), the National Oceanic and Atmospheric Administration (NOAA), 
    EPA, and the U.S. Coast Guard for dense gas vapor dispersion analysis. 
    It has also been incorporated in the ALOHA (Area Location of Hazardous 
    Atmospheres) model. ALOHA is designed for on-site use at accidental 
    releases for emergency response planning purposes. The South Coast Air 
    Quality Management District of California has also accepted the use of 
    the DEGADIS model.
        Since the DEGADIS model is in the public domain, is recognized by 
    other federal and state agencies, and provides significantly more 
    realistic determination of vapor exclusion distances than the GLS model 
    currently in 49 CFR 193.2059, RSPA is adopting the DEGADIS model.
    
    Rulemaking Analysis and Notices
    
    Executive Order 12866 and DOT Regulatory Policies and Procedures
    
        This rule is not considered to be a significant regulatory action 
    under section 3(f) of Executive Order 12866, and is not considered 
    significant under DOT Regulatory Policies and Procedures (44 FR 11034; 
    February 26, 1979).
        This rule amends LNG regulations to include requirements for mobile 
    and temporary facilities. This rule replaces the current method 
    prescribed for ``Thermal Radiation Protection'' with the ``LNGFIRE'' 
    program model. In addition, this rule replaces the current method 
    prescribed for ``Flammable vapor-gas dispersion protection'' with the 
    ``DEGADIS'' dense gas dispersion model. This is consistent with the 
    President's goal of regulatory reinvention and improvement of customer 
    service to the American people. There is no additional cost to comply 
    with this rule. These changes do not warrant preparation of a 
    Regulatory Evaluation.
    
    Executive Order 12612
    
        This action has been analyzed under the criteria of Executive Order 
    12612 (52 FR 41685; October 30,1987) and does not have sufficient 
    federalism impacts to warrant the preparation of a Federalism 
    Assessment.
    
    Regulatory Flexibility Act
    
        Based on the facts available concerning the impact of this rule, I 
    certify under section 606 of the Regulatory Flexibility Act that it 
    does not have a significant impact on a substantial number of small 
    entities.
    
    Paperwork Reduction Act
    
        This rule does not modify the paperwork burden that LNG operators 
    already have. Therefore, a paperwork evaluation is unnecessary.
    
    List of Subjects in 49 CFR Part 193
    
        Fire prevention, Incorporation by reference, Pipeline safety, 
    Reporting and recordkeeping requirements, Security measures.
    
        In consideration of the foregoing, RSPA amends Part 193 of title 49 
    of the Code of Federal Regulations as follows:
    
    PART 193--[AMENDED]
    
        1. The authority citation for Part 193 continues to read as 
    follows:
    
        Authority: 49 U.S.C. 5103, 60103, 60104, 60108, 60109, 60111, 
    60112, 60118; and 49 CFR 1.53.
    
    
    [[Page 8404]]
    
    
        2. Part 193 is amended by adding Sec. 193.2019 to subpart A to read 
    as follows:
    
    
    Sec. 193.2019  Mobile and temporary LNG facilities.
    
        Mobile and temporary LNG facilities for peakshaving application, 
    for service maintenance during gas pipeline systems repair/alteration, 
    or for other short term applications need not meet the requirements of 
    this part if the facilities are in compliance with section 2-3.4 of 
    NFPA 59A (1996 edition).
        3. Section 193.2057 is amended by revising paragraphs (b) and 
    (c)(1) to read as follows:
    
    
    Sec. 193.2057  Thermal radiation protection.
    
    * * * * *
        (b) Measurement. The exclusion distance ``d'' is the horizontal 
    distance measured from the impoundment area to the target where the 
    following apply:
        (1) The maximum calculated exclusion distance for each thermal flux 
    level shall be used for that exposure (offsite target) in paragraph (d) 
    of this section.
        (2) The wind speed producing the maximum exclusion distances shall 
    be used except for wind speeds that occur less than 5 percent of the 
    time based on recorded data for the area.
        (3) The ambient temperature and relative humidity that produce the 
    maximum exclusion distance shall be used except that values that occur 
    less than 5 percent of the time based on recorded data for the area 
    shall not be used.
        (4) Properties of LNG with the highest anticipated heating value 
    shall be used.
        (5) The height of the flame base should be that of any dike or 
    containment in relation to the horizontal reference plane. The height 
    of the target shall be in relation to the same reference plane.
        (c) * * *
        (1) The method of calculating the exclusion distances for levels of 
    radiant exposure listed in paragraph (d) of this section shall be the 
    method described in Gas Research Institute report GRI-89/0176 and also 
    available as the ``LNGFIRE'' computer program from GRI.
    * * * * *
        4. The ``Impoundment & Topography Elevation Profile'' diagram 
    following Sec. 193.2057(b) of this section is removed.
        5. Section 193.2059 is amended by revising paragraphs (c) 
    introductory text and (d)(1)(ii) and adding paragraph (c)(4), to read 
    as follows:
    
    
    Sec. 193.2059  Flammable vapor-gas dispersion protection.
    
    * * * * *
        (c) Computing dispersion distance. A minimum dispersion distance 
    must be computed for the impounding system. If grading and drainage are 
    used under Sec. 193.2149(b), operators must comply with the 
    requirements of this section by assuming the space needed for drainage 
    and collection of spilled liquid in an impounding system. Dispersion 
    distances must be determined in accordance with the following 
    dispersion parameters, using the ``DEGADIS'' model described in Gas 
    Research Institute report No. GRI 89/0242 titled ``LNG Vapor Dispersion 
    Predication with the DEGADIS Dense Gas Dispersion Model'', or a model 
    for vapor dispersion which meets the requirements of 
    Sec. 193.2057(c)(2)(ii) through (iv):
    * * * * *
        (4) A surface roughness factor of 3 cm shall be used. Higher values 
    for the roughness factor may be used if it can be shown that the 
    terrain both upwind and downwind of the vapor cloud has dense 
    vegetation and that the vapor cloud height is more than ten times the 
    height of the obstacles encountered by the vapor cloud.
        (d) * * *
        (1) * * *
        (ii) In determining variations in the vaporization rate due to 
    surface contact, the time necessary to wet 100 percent of the 
    impounding floor area shall be determined by equation C-9 in the 1974 
    AGA report titled ``Evaluation of LNG Vapor Control Methods,'' or by 
    using an equivalent personal computer program based on equation C-9 or 
    by an alternative model which meets the requirements of 
    Sec. 193.2057(c)(2)(ii) through (iv).
    * * * * *
        6. Appendix A to Part 193 is amended in subsection I. by revising 
    the entries E., F., G., and H. and adding an entry I., and amended in 
    subsection II. by redesignating entries F. and G. as entries G. and H. 
    and adding a new entry F. to read as follows:
    
    Appendix A to Part 193--Incorporation by Reference
    
    I. List of Organizations and Addresses
    
    * * * * *
        E. American Society of Civil Engineers (ASCE), 345 East 47th 
    Street, New York, NY 10017-2398.
        F. American Society of Mechanical Engineers (ASME), United 
    Engineering Center, 345 East 47th Street, New York, NY 10017.
        G. Gas Research Institute (GRI), 8600 West Bryn Mawr Ave, 
    Chicago, IL 60631.
        H. International Conference of Building Officials, 5360 South 
    Workman Mill Road, Whittier, CA 90601.
        I. National Fire Protection Association (NFPA), 1 Batterymarch 
    Park, P.O.Box 9101, Quincy, MA 02269-9101.
    
    II. Documents Incorporated by Reference. (Numbers in Parentheses 
    Indicate Applicable Editions)
    
    * * * * *
        F. Gas Research Institute (GRI):
        1. GRI-89/0176 ``LNGFIRE: A Thermal Radiation Model for LNG 
    Fires'' (June 29, 1990).
        2. GRI-89/0242 ``LNG Vapor Dispersion Prediction with the 
    DEGADIS Dense Gas Dispersion Model'' (April 1988-July 1990).
    * * * * *
        Issued in Washington, D.C. on January 23, 1997.
    Kelley S. Coyner,
    Deputy Administrator.
    [FR Doc. 97-4614 Filed 2-24-97; 8:45 am]
    BILLING CODE 4910-60-P