A guide to the Pipelines Safety Regulations 1996 Guidance on Regulations

This is a free-to-download, web-friendly version of L82 (First edition, published 1996). This version has been adapted for online use from HSE’s current printed version.

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ISBN 978 0 7176 1182 9 Price £9.00

This booklet gives guidance on the Pipelines Safety Regulations 1996 which complement a number of other onshore and offshore regulations.

The Regulations apply to all pipelines in Great Britain and to all pipelines in territorial waters of the UK Continental Shelf, with a few exceptions that are also highlighted in the booklet.

It is aimed at helping operators and others involved with pipeline activities, or those who may be affected by the Regulations, what the Regulations require.

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© Crown copyright 1996

First published 1996 Reprinted 2002, 2004, 2011, 2012

ISBN 978 0 7176 1882 9

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This guidance is issued by the Health and Safety Executive. Following the guidance is not compulsory and you are free to take other action. But if you do follow the guidance you will normally be doing enough to comply with the law. Health and safety inspectors seek to secure compliance with the law and may refer to this guidance as illustrating good practice.

Contents Preface 5

Introduction 6

Part I Introduction 7

Regulation 1 Citation and commencement 7 Regulation 2 Interpretation 7 Regulation 3 Meaning of “pipeline” 9 Regulation 4 Application 14

Part II General 15

Regulation 5 Design of a pipeline 15 Regulation 6 Safety systems 16 Regulation 7 Access for examination and maintenance 16 Regulation 8 Materials 17 Regulation 9 Construction and installation 17 Regulation 10 Work on a pipeline 19 Regulation 11 Operation of a pipeline 19 Regulation 12 Arrangements for incidents and emergencies 20 Regulation 13 Maintenance 21 Regulation 14 Decommissioning 22 Regulation 15 Damage to pipeline 23 Regulation 16 Prevention of damage to pipelines 23 Regulation 17 Co-operation 24

Part III Major accident hazard pipelines 25

Regulation 18 Dangerous fluids 25 Regulation 19 Emergency shut-down valves 25 Regulation 20 Notification before construction 26 Regulation 21 Notification before use 28 Regulation 22 Notification in other cases 29 Regulation 23 Major accident prevention document 30 Regulation 24 Emergency procedures 34 Regulation 25 Emergency plans in case of major accidents 35 Regulation 26 Charge by a local authority for a plan 38 Regulation 27 Transitional provision 39

Part IV Miscellaneous 40

Regulation 28 Defence 40 Regulation 29 Certificates of exemption 41 Regulation 30 Repeal of provisions of the Pipe-lines Act 1962 42 Regulation 31 Revocation and modification of instruments 42

Schedule 1 Pipelines to which these Regulations do not apply 43 Schedule 2 Descriptions of dangerous fluids 44 Schedule 3 Requirements for emergency shut-down valves on certain major accident hazard pipelines connected to offshore installations 46 Schedule 4 Particulars to be included in notification relating to construction of a major accident hazard pipeline 48 Schedule 5 Particulars to be notified before certain events relating to major accident hazard pipelines 49 Schedule 6 Revocation and modification 52

Preface This guide to the Pipelines Safety Regulations 1996 (SI 1996/825) is intended to help pipeline operators and others involved with pipeline activities or who may be affected by the Regulations to understand what the Regulations require.

Environmental considerations

The Pipelines Safety Regulations 1996, made under the Health and Safety at Work etc Act 1974, do not cover the environmental aspects of accidents arising from pipelines. However the Regulations, by ensuring that a pipeline is designed, constructed and operated safely, provide a means of securing pipeline integrity, thereby reducing risks to the environment.

It is important that effects on the environment are considered at all stages in the life cycle of a pipeline.

Most large onshore pipeline projects require an assessment to be carried out which is designed to identify the likely impact of a project on the environment, to determine the significance of that impact and to establish mechanisms which will minimise any adverse impact. The Electricity and Pipeline Works (Assessment of Environmental Effects) Regulations 1990 apply to cross-country pipelines as defined under the Pipelines Act 1962 (PA62) and detail the procedures to be followed when considering the need for an environmental statement to accompany an application for a pipeline construction authorisation from the Secretary of State for Trade and Industry. The Town and Country Planning (Assessment of Environmental Effects) Regulations 1988 apply to PA62 local pipelines.

The Environment Agency (or its Scottish equivalent the Scottish Environment Protection Agency) issues good practice guidance on how the operators’ responsibilities under duty of care can best be met. The Water Resources Act 1991 gives the agencies powers of prosecution in the event of any spillages resulting in the pollution of watercourses.

Environmental aspects of offshore pipelines are addressed in the Pipelines Works Authorisations, issued by the Department of Trade and Industry, through the provisions of the Petroleum and Submarine Pipelines Act 1975.

For offshore pipelines with a diameter greater than 800 mm and a length of more than 40 km an environmental impact assessment will soon need to be carried out once the Environmental Impact Directive is implemented.

Information on design and construction

The Health and Safety Commission (HSC) has issued an informal discussion document to consider ways of ensuring that pipeline operators can comply with their duties through the provision of design and construction information.

Introduction 1 This booklet gives guidance on the Pipelines Safety Regulations 1996, which came into force on 11 April 1996. For convenience, the text of each regulation is included in italics, with the appropriate guidance immediately below. Where regulations are self-explanatory, no comment is offered.

2 The Pipelines Safety Regulations (referred to as ‘the Regulations’ in this guidance) replace earlier prescriptive legislation on the management of pipeline safety with a more integrated, goal-setting, risk-based approach encompassing both onshore and offshore pipelines. They revoke various requirements which had become unnecessary.

3 The Regulations complement other onshore and offshore regulations. Offshore they complement the new regime for offshore health and safety legislation at the heart of which lies the Offshore Installations (Safety Case) Regulations 1992 (SI 1992/2885). Onshore they complement the regulations dealing with extending competition to the domestic gas market including the Gas Safety (Management) Regulations 1996 (SI 1996/551). The Pipelines Safety Regulations cover:

(a) the definition of a pipeline; (b) the general duties for all pipelines; (c) the need for co-operation among pipeline operators; (d) arrangements to prevent damage to pipelines; (e) consequential amendments to other regulations (eg repeal of sections of the Pipelines Act 1962 and the revocation of three sets of regulations and parts of three further sets of regulations);

and for major accident hazard pipelines they cover:

(f) the description of a dangerous fluid; (g) the requirement for emergency shut-down valves (ESDVs) at offshore installations; (h) the notifications structure; (i) the major accident prevention document; (j) the arrangements for emergency plans; (k) the transitional arrangements.

Scope of the Regulations

4 The Regulations apply to all pipelines in Great Britain, and to all pipelines in territorial waters and the UK Continental Shelf. Schedule 1 lists the pipelines to which these Regulations do not apply. Detailed guidance to Schedule 1 is given in the commentary on the Schedule.

Part I Introduction

Citation and commencement Regulation Regulation 1 These Regulations may be cited as the Pipelines Safety Regulations 1996 and shall 1 come into force on 11th April 1996.

Interpretation Regulation Regulation 2 (1) In these Regulations, unless the context otherwise requires - 2 ”dangerous fluid” has the meaning given by regulation 18(2);

Guidance 5 The definition of dangerous fluid in the Regulations is widely drawn; the fluids covered are contained in Schedule 2 which lists the dangerous fluids by generic 2 category and, where appropriate, the conditions under which they are conveyed.

Regulation “emergency shut-down valve” means a valve which is capable of adequately 2 blocking the flow of fluid within the pipeline at the point at which it is incorporated;

Guidance 6 Regulation 19 requires emergency shut-down valves (ESDVs) to be fitted to certain pipelines connected to offshore installations. An ESDV should be capable of stopping the flow of fluid within the pipeline. However, minor internal leakage past the ESDV may be accepted providing it does not represent a threat to safety. The rate of leakage should be based on the installation’s ability to control safely the 2 hazards produced by such a leak.

Regulation “the Executive” means the Health and Safety Executive;

“fluid” includes a mixture of fluids;

“local authority” means -

(a) in relation to England, a county council, a council having the functions of a county council, the London Fire and Civil Defence Authority, a metropolitan county fire and civil defence authority, or the Council for the Isles of Scilly; (b) in relation to Scotland, the council for a local government area; and 2 (c) in relation to Wales, a county council or a county borough council;

Guidance 7 Regulations 25 and 26 relate to emergency plans to be prepared by local authorities. This duty falls to the local emergency planning authority; in the case of metropolitan authorities this rests with the appropriate metropolitan county fire and civil defence authority. In Scotland, where regional councils were replaced by unitary authorities on 1 April 1996, the preparation of emergency plans rests with the local unitary authority.

Regulation 2 “major accident” means death or serious injury involving a dangerous fluid;

Guidance 8 The term ‘major accident’ appears in a number of places in these Regulations. In particular, the judgement whether there is the potential to cause a major accident will determine the range of hazards identified, and the risks to be evaluated, under regulations 23(1)(a) and (b) and will determine the scope of emergency procedures and plans prepared under regulations 24 and 25.

9 A major accident would cover death or serious injury from a fire, explosion or uncontrolled emission from a pipeline. This includes both events which have escalated beyond the control of the normal operating envelope of the pipeline and those resulting from third party interference. Whether an event leads to serious danger to people will depend on factors specific to the incident. Major accidents to people can be distinguished from other accidents by the severity of the injuries, the number of casualties, or by the physical extent of the damage in areas where people may be present. The risk strategy needs to address fully the potential for 2 any major accident.

Regulation 2 “major accident hazard pipeline” has the meaning given by regulation 18(1);

Guidance 10 A ‘major accident hazard pipeline’ is one which conveys a dangerous fluid 2 which has the potential to cause a major accident.

Regulation “operator”, in relation to a pipeline means -

(a) the person who is to have or (once fluid is conveyed) has control over the conveyance of fluid in the pipeline; (b) until that person is known (should there be a case where at a material time he is not yet known) the person who is to commission or (where commissioning has started) commissions the design and construction of the pipeline; (c) when a pipeline is no longer, or is not for the time being used, the 2 person last having control over the conveyance of fluid in it.

Guidance 11 The operator of the pipeline is the person who has control of the pipeline at any time during all stages of its life cycle from the design stage through to final decommissioning.

12 Until the person who is to have control of the conveyance of fluid is known, the operator is the person who commissions the design of the pipeline or (where 2 such work has started) the person who commissioned the design.

Regulation “pipeline” shall be construed in accordance with regulation 3.

(2) Unless the context otherwise requires, any reference in these Regulations to -

(a) a numbered regulation or Schedule is a reference to the regulation or Schedule in these Regulations so numbered; and (b) a numbered paragraph is reference to the paragraph so numbered in the 2 regulation or Schedule in which the reference appears.

Meaning of “pipeline” Regulation Regulation 3 (1) Subject to the provisions of this regulation, in these Regulations “pipeline” means a pipe or system of pipes (together with any apparatus and works, of a kind described in paragraph (2), associated with it) for the conveyance of any fluid, not being -

(a) a drain or sewer; (b) a pipe or system of pipes constituting or comprised in apparatus for heating or cooling or for domestic purposes; (c) a pipe (not being apparatus described in paragraph (2)(e)) which is used in the control or monitoring of any plant.

(2) The apparatus and works referred to in paragraph (1) are -

(a) any apparatus for inducing or facilitating the flow of any fluid through, or through a part of, the pipe or system; (b) any apparatus for treating or cooling any fluid which is to flow through, or through part of, the pipe or system; (c) valves, valve chambers and similar works which are annexed to, or incorporated in the course of, the pipe or system; (d) apparatus for supplying energy for the operation of any such apparatus or works as are mentioned in the preceding sub-paragraphs; (e) apparatus for the transmission of information for the operation of the pipe or system; (f) apparatus for the cathodic protection of the pipe or system; and (g) a structure used or to be used solely for the support of a part of the pipe 3 or system.

Guidance 13 This regulation defines what is meant by a pipeline. Drains and sewers including liquid effluent outfalls which discharge into a river or estuary are not considered to be pipelines for the purposes of these Regulations.

14 These Regulations do not apply to pipelines which form part of control monitoring equipment such as small bore pipes or tubes normally bundled together with cables, wires, etc to form an ‘umbilical’ used for hydraulic control or signalling purposes.

15 However, new designs of ‘umbilicals’ are appearing with pipes within the bundle which are larger in diameter and are used for the conveyance of fluids for purposes other than control or monitoring. It is likely that future designs may include pipes of considerable diameter or even a number of ‘large’ diameter pipelines bundled together. Even though the basic design and structure of these new systems may be similar to umbilicals, they will be considered to be pipelines and will be subject to the requirements of these Regulations.

16 These Regulations cover pipelines used for the conveyance of fluid. Electrical equipment such as high voltage cable systems which utilise fluid under pressure for circuit integrity and are self-contained are excluded from the scope of these 3 Regulations.

Regulation (3) For the purpose of sub-paragraph (c) of paragraph (2) a valve, valve chamber or similar work shall be deemed to be annexed to, or incorporated in the course of, a pipe or system where it connects the pipe or system to plant, an 3 offshore installation, or a well.

Guidance 17 Regulation 3(3) defines the interface between plant, an offshore installation or a well and the pipeline.

18 Figures 1 to 7 give examples of different interfaces and illustrate the limits of 3 pipelines covered by these Regulations.

Note: The diagrams in Figures 1 to 7 are for illustrative purposes only - they are not proper representations of actual pipeline systems.

Vent

Limit of pipeline if a pig trap is not Limit of fitted Fenceline Pig pipeline trap Limit of pipeline

Drain

Pipeline

Figure 1 Limit of a pipeline at a factory, onshore terminal, refinery, etc

Vent

Process Limit of pipeline Pig trap

Limit of pipeline Limit of pipeline if Drain ESDV a pig trap is not fitted

Riser

Figure 2 Limit of a pipeline at an onshore installation

Vent

Pig trap Pressure reduction Relief Compressors station

Vent Bypass Fuel gas supply Pig trap

Figure 3 Limit of a pipeline at a mid-line gas compressor station

Vent Vent

Limit of Bypass pipeline

Figure 4 Limit of a pipeline at a block valve site

Limit of pipeline

Limit of pipeline

Drain

Figure 5 Limit of a pipeline at a mid-point pig trap site

Meter

Mains Regulator

Limit of pipeline

Mains

Figure 6 Limit of a pipeline for a gas distribution network

Limit of pipeline Subsea Limit of pipeline pipeline Limit of pipeline if a pig trap is not fitted

Subsea template/well cluster

Figure 7 Limit of a pipeline at a subsea template or well cluster

Guidance 19 Pig traps connected to a pipeline, used for either launching or receiving pigs or for facilitating other equipment to be run through a pipeline, are included within the scope of the Regulations. The pig itself, or other equipment run through a pipeline, is not considered to be part of the pipeline.

20 For pipelines connected to onshore plant, the limit of the pipeline is the primary shut-off valve which connects the pipeline to the plant or the primary valve(s) off the pig trap, where fitted, which connects the pipeline to the plant. Process plant facilities and pipework beyond the primary shut-off valve are not covered by these Regulations.

21 On an offshore installation the limit of the pipeline is up to and including the emergency shut-down valve or primary shut-off valve(s) off the pig trap, where fitted, which connects the pipeline to the installation.

22 Although apparatus for inducing or facilitating flow is included in the definition of a pipeline, where such apparatus is