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

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3 C H A P T E R 1 Purpose and Scope Pipeline incidents can have negative consequences for life, property, and the environment. Analysis of previous inci- dents indicates that communication (the exchange of infor- mation) is crucial in the early stages of a pipeline emergency. Challenges may include recognition of the pipeline emer- gency, identification of the appropriate pipeline operator, and passing information back and forth from pipeline operators to emergency responders in the field. The need to focus on communication needs in pipeline emergencies is critical to produce a favorable outcome, and must be planned prior to an incident. This guide’s scope is limited to pre-incident planning for com- munication between local emergency responders and pipeline operators. It only addresses communications, and does not address operational aspects of pipeline response. The target audience is personnel tasked with developing plans for responding to pipeline emergencies, regardless of their affiliation, as well as those responsible for communicating applicable information in the plans to appropriate emergency responders and agencies. The focus is on lessons and observations from actual incidents and response scenarios to inform the need to identify commu- nication procedures before an incident. In this guide, the research team provides suggestions for a common basis of understanding and organizing commu- nications necessary to respond to pipeline emergencies. It is intended to “bridge the gap” between the pipeline operators and the emergency response community, defined primarily as those local public safety agencies that make initial response to reported pipeline emergencies: fire, police, and emergency medical services. The purpose of this guide is to • Fill a gap between the emergency response literature for pipeline emergencies and the intent of regulation and good practice that encourages local public emergency response organizations to become familiar with the pipeline opera- tors in their response areas. • Assist pipeline operators in better understanding the needs of the emergency response community. • Assist emergency responders in better understanding the needs of pipeline operators. • Help form a common basis for local emergency services and pipeline operators to engage in a dialogue around the transfer of critical information both prior to and during a pipeline emergency. Each agency or organization that responds to a pipeline emergency has information needs that are unique. Terminol- ogy differs between pipeline operators and emergency respond- ers, and even between emergency response organizations. The ability to share critical information with the right organization at the right time is the key to a successful response. For pipeline operators, the guide provides a framework for understanding the complexity and variation in emergency responder infor- mation needs, as well as for understanding the tremendous variation in capacity and organization across the United States. For emergency responders, the guide provides a framework for understanding pipeline operator information needs. Of course, communications for such a complex and spe- cialized emergency requires considerable planning and prep- aration. This guide provides the information necessary to begin or improve the process in your community. Informa- tion needs elicited from both pipeline operators and emer- gency responders in response to actual pipeline emergencies and in planning activities associated with potential pipeline response scenarios are included. The guide also reflects lessons learned from an analysis of actual pipeline emergencies. References to emergency response in the role-based scenar- ios are made to inform and motivate the need for pre-incident communications planning. The use of role-based information allows the reader to generalize across multiple contexts, and recognize the variation in responsibilities across different orga- nizations, which can vary depending on the stage of the inci- dent, and the circumstances particular to any individual event. The research team recommends applying this process at a local level, to reflect variations in local operating conditions About the Guide

4and hazards. Then, incorporate the findings of local planning efforts into local emergency operations plans. These finding will also become part of emergency planning training and exercises in your local jurisdiction. Limitations This guide is a pre-emergency guidance tool. It is only for use during the planning phase of an emergency response. Pipe- line incidents may be complex and involve many organizations and individuals who do not routinely work together. The guide provides suggestions only for that purpose. While there is con- siderable difference in terminology within disciplines and even organizational responsibilities throughout the country, this guide portrays common roles and responsibilities. Although federal pipeline regulation is common across the United States, state-level regulations may vary in the require- ments placed on pipeline operators and emergency responders. Locally, different levels of resources may be available to assist in the event of a pipeline emergency. The guide intends to pro- vide general guidance, and does not explicitly address these differences. Finally, the guide attempts to deal with pipelines carrying multiple products and modes of operation. The guide, by necessity, generalizes in order to summarize and draw conclu- sions and develop guidance. The guide is not a substitute for knowledge of local pipeline operations or reliance on expertise of local, state, and federal organizations who serve your area. How to Use the Guide This guide is designed to facilitate the planning process for pipeline emergency response. It is designed to be a reference for emergency responders such as local police, fire, and emer- gency medical services, and public safety emergency com- munications (9-1-1) centers. The guide is also intended as a planning resource for pipeline operators to help them iden- tify and work with local emergency responders to prepare for potential incidents. The guide consists of five chapters: • Chapter 1: About the Guide • Chapter 2: Introduction: Why Plan for Communications at Pipeline Incidents • Chapter 3: Decisions, Roles, and Organization Affiliations: The Role Determines the Decisions and Information Needs • Chapter 4: Developing and Exercising the Communica- tions Plans • Chapter 5: About the Project It also includes a reference list and three appendices: • Appendix 1: Contractor’s Final Report for HMCRP Project 15 • Appendix 2: Summary of Current Federal, State, and Rep- resentative Local and Tribal Regulations and Ordinances Governing Emergency Response Plans for Natural Gas and Hazardous Liquids Pipelines • Appendix 3: Review and Summary of Voluntary Consen- sus Standards for Best Practices Related to Communicating Emergency Response Plans and Their Effectiveness These appendices are unpublished herein but can be found online at www.trb.org by searching for HMCRP Report 14. Although the guide is written to be concise, the relevant chapters can be consulted directly for additional information. It is not necessary to read the entire guide before proceeding.