[Federal Register: October 16, 2009 (Volume 74, Number 199)]
[Notices]
[Page 53321-53323]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr16oc09-163]
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DEPARTMENT OF TRANSPORTATION
Federal Railroad Administration
Safety Advisory 2009-02
AGENCY: Federal Railroad Administration (FRA), Department of
Transportation (DOT).
ACTION: Notice of Safety Advisory 2009-02; Inspection of Bottom Outlet
Valves and Assemblies.
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SUMMARY: FRA is issuing Safety Advisory 2009-02 to ensure that tank
cars with defective or inoperable bottom outlet valves are not loaded
with hazardous materials and offered for transportation, or in the
event that a bottom outlet valve becomes inoperable en route, adequate
unloading procedures are followed to prevent any unintended release of
the car's contents. This safety advisory recommends specific loading
and unloading procedures for hazardous materials tank cars equipped
with bottom outlet valves, as well as the inspection, and as necessary,
the repair of these valves.
FOR FURTHER INFORMATION CONTACT: Albert R. Taber or Erich P. Rudolph,
Railroad Safety Specialists, Hazardous Materials Division, FRA Office
of Safety Assurance and Compliance, 1200 New Jersey Avenue, SE.,
Washington, DC 20590 (telephone: (202) 493-6254, e-mail:
Albert.Taber@dot.gov; or telephone (202) 493-6248, e-mail:
Erich.Rudolph@dot.gov).
SUPPLEMENTARY INFORMATION:
Background
By way of the one-time movement approval process (Title 49 Code of
Federal Regulations (CFR) 174.50), FRA has documented approximately 390
service equipment failures of bottom outlet valves since 2004. One
hundred and eight of these failures occurred in calendar year 2008
alone, and to date in 2009, approximately 110 failures have already
occurred. FRA believes that these documented failures do not reflect
the entire population of bottom outlet failures that occur each year,
as many may go unreported.
As exemplified by documented incidents of bottom outlet failures, a
defective or inoperable bottom outlet valve may lead to the unintended
release of a tank car's contents during the unloading process. As an
example, on October 28, 2004, at Techsol Chemical Company, in
Huntington, WV, more than 22,000 gallons of a Class 3 hazardous
material was released during the unloading of a tank car equipped with
a bottom outlet valve. The release was determined to be the result of a
bottom outlet valve clogged with sludge, and an unloading procedure
that failed to detect the inoperative valve. On May 31, 2008,
approximately 170,000 lbs of a Class 9 elevated temperature material
was released during the unloading of a tank car equipped with a bottom
outlet valve. The elevated temperature material had been heated to
approximately 280 [deg]F for unloading and although the individual
unloading the car reportedly observed the bottom outlet valve handle
secured and in the closed position, as that individual removed the
bottom outlet cap, hot steamed resin was released from the bottom
outlet, splashing the unloader. The resin released at a rate of
approximately 160 gallons per minute and the unloader suffered first-
and second-degree burns from contact with the material. The release was
determined to be the result of a bent bottom outlet valve handle, which
allowed the internal valve to be in the open position, and unloading
procedures that failed to detect the inoperative valve. More recently,
on May 13, 2009, approximately 23,500 gallons of hot asphalt, a Class 9
hazardous material, was released during the unloading of a tank car
equipped with a bottom outlet valve. In this case, because the valve
operating handle was improperly applied to the valve assembly, the
handle appeared to be in the closed position, but the internal valve
was actually in the open position. Accordingly, this release was
determined to be the result of the improperly applied valve handle, and
loading and unloading procedures that failed to detect the improperly
assembled valve.
FRA believes that the occurrence of bottom outlet valve failures
could be significantly reduced by (1) ensuring that certain procedures
are followed during the tank car loading and unloading process, and (2)
ensuring that a proper preliminary examination of the valve assembly is
performed after a tank car is cleaned and purged, and before the car is
loaded and offered for transportation.
FRA's recommendations in this safety advisory take into
consideration the typical operational steps involved in loading/
unloading tank cars equipped with bottom outlet valves, regardless of
whether the valve is ``top-operated'' or controlled by a valve-mounted
handle (``bottom-operated''). Generally, the bottom outlet cap or plug
should not be removed from a tank car's bottom outlet discharge nozzle
until it is ascertained that the bottom outlet valve is actually closed
and functioning properly. In accordance with Appendix E of the
Association of American Railroads' (AAR) Tank Car Committee Tank Car
Manual,\1\ tank car bottom outlet caps and plugs are designed to
provide tell-tale warnings upon loosening if a bottom outlet valve is
not functioning properly. Accordingly, the design of bottom outlet
discharge nozzles and closures allows any product that has accumulated
between the bottom outlet operating valves and the bottom outlet
closure cap or plug (i.e., in the outlet chamber) to drain in a safe
and controlled manner. Once it is determined, by using the relationship
of the handle to the valve as an indicator, that the bottom outlet
valve is in the closed position, a person unloading a tank car should
loosen the bottom outlet cap a few turns, leaving sufficient threads
engaged, and allowing the passage of sufficient time to permit the
controlled seepage of any liquid accumulated in the outlet chamber. If
a tank car is equipped with an auxiliary
[[Page 53322]]
valve below the primary bottom outlet valve, that auxiliary valve
should be in the open position, with its cap/plug removed, allowing an
unloader to determine whether the primary valve is functioning
properly. Once this accumulated product has drained out around the
closure, the leakage should stop. This is an indication that the bottom
outlet valve is functioning properly and that it is safe for the
unloader to proceed with removing the bottom outlet cap or plug (a
properly functioning bottom outlet valve in the closed position will
contain the contents of the car on its own).
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\1\ AAR, Operations and Maintenance Department, Mechanical
Division, ``Manual of Standards and Recommended Practices Section C
Part III-Specifications for Tank Cars M-1002'' (revised annually).
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If, however, leakage continues upon the loosening of a bottom
outlet cap or plug, or there is an excessive amount of product
drainage, this is an indication that the primary bottom outlet valve is
not functioning properly (e.g., the valve may be defective, debris may
be clogging the valve seat area and/or assembly components, or the
valve is otherwise failing to function properly). Accordingly, the
bottom outlet valve cap or plug should not be completely removed.
Instead, the cap or plug should be secured and the tank should be
unloaded from the fittings on top of the car. Unless FRA has granted a
movement approval pursuant to 49 CFR 174.50, tank cars identified with
bottom outlet valves not functioning properly cannot be offered into
transportation in compliance with the Hazardous Materials Regulations
(HMR) (49 CFR Parts 171-180).
The proper functioning of the bottom outlet valve is critical
during the unloading of hazardous materials tank cars. Prior to June 1,
2005, the tank car unloading requirements of Part 174 of the HMR
applied to all hazardous material tank car unloading operations. These
requirements were set forth in Section 174.67 of the HMR and included
certain procedural requirements. Specifically, Section 174.67(g)
required that during tank car unloading operations, if leakage was
apparent upon starting the removal of a tank's bottom outlet cap, the
cap may not be entirely unscrewed. Instead, Section 174.67(g) required
that ``[s]ufficient threads * * * be left engaged and sufficient time
allowed to permit controlled escape of any accumulation of liquid in
the outlet chamber.'' Only if the leakage stopped or the rate of
leakage diminished materially, could the bottom outlet cap be entirely
removed in accordance with Section 174.67(g). That section further
provided that ``[i]f the initial rate of leakage continues, further
efforts must be made to seat the outlet valve * * *. If this fails, the
[bottom outlet cap] must be screwed up tight and the tank must be
unloaded through the dome.''
On April 15, 2005, the Pipeline and Hazardous Materials Safety
Administration (PHMSA) published a final rule, which modified the HMR's
applicability to certain tank car unloading processes. See 72 FR 20018.
The end result of this final rule was that the requirements of Section
174.67 related to the protection of train and engine crews operating
within a shipper or consignee facility were consolidated in Part 173 of
the HMR, and the remaining procedural requirements of Section 174.67,
including paragraph (g), became applicable only to transloading
operations (i.e., the transfer of a hazardous material from one
packaging to another for the purpose of continuing transportation in
commerce). Although the HMR currently only explicitly requires that the
procedures of Section 174.67(g) be followed during transloading
operations, FRA recommends that persons responsible for unloading
hazardous materials tank cars equipped with bottom outlet valves follow
these procedures in all tank car unloading operations in order to
detect an inoperable or defective bottom outlet valve, which could lead
to an unintended release of a car's contents during the unloading
process.
The proper functioning of the bottom outlet valve is also critical
during the loading of railroad hazardous materials tank cars. Prior to
July 1, 1996, the HMR specifically required that ``[t]anks with bottom
discharge outlets must have their outlet caps off, or outlet cap plugs
open, during the entire time tanks are being loaded.'' See 49 CFR
173.31(b) (1994). That same section of the HMR also prohibited tanks
with bottom outlet valves which, after loading, permitted more than a
dropping of the liquid contents of the tank with the outlet caps off,
or the outlet cap plugs open, from being offered for transportation
until proper repairs had been made. On September 21, 1995, the Research
and Special Program Administration (RSPA), now known as PHMSA,
published a final rule, developed jointly with FRA, that ``revised and
reorganized for clarity'' 49 CFR 173.31, which addressed the
qualification, maintenance, and use of tank cars. See 68 FR 49048,
49067 (effective July 1, 1996). RSPA's stated intent in revising and
reorganizing 49 CFR 173.31 was to ``align[ ] the inspection
requirements in * * * 173.31(b) with the design and operations
requirements'' generally applicable for packagings and packages in 49
CFR 173.24. Id. at 49064. RSPA intended the revision to ``clarify [the
inspection requirements'] full intent, foster compliance with safety
standards, and improve hazardous materials transportation safety.'' Id.
The rule was not intended to substantively modify the previous
requirements of 49 CFR 173.31(b).
Although explicit language no longer appears in the HMR requiring
bottom outlet caps to be off or outlet cap plugs to be open during the
loading process, or prohibiting loaded tank cars, with more than a
dropping of liquid with their outlet caps off or outlet cap plugs open,
from being offered for transportation until repairs have been made, the
requirements of 49 CFR 173.24 remain the same. Specifically, 49 CFR
173.24 requires that packages used for the transportation of hazardous
materials be ``designed, constructed, maintained, filled, * * *
contents so limited, and closed, so that under conditions normally
incident to transportation * * * there will be no identifiable release
of hazardous materials to the environment.'' Accordingly, FRA
recommends that persons responsible for loading tank cars equipped with
bottom outlet valves follow the inspection and operational procedures
recommended below in order to detect an inoperable or defective bottom
outlet valve, which could lead to an unintended release of the car's
contents during transportation or during the process of loading or
unloading the car.
FRA reminds those responsible for loading and unloading railroad
tank cars that the United States Department of Labor Occupational
Safety and Health Administration's rule regarding process safety
management of highly hazardous chemicals (29 CFR 1910.119), the U.S.
Environmental Protection Agency's risk management plan regulations (40
CFR Part 68), and other standards and rules of these agencies may also
apply to tank car loading and unloading operations in certain
circumstances.
Recommended Action: Based on the necessity to reduce the number and
severity of incidences due to bottom outlet valve failures and to
enhance the public's confidence in the safety of hazardous materials
transportation by rail, FRA makes the following recommendations:
1. Loading a Railroad Tank Car Equipped With a Bottom Outlet Valve or
Valves
Persons responsible for loading a tank car equipped with a bottom
outlet valve or valves should:
2. operate the bottom-outlet valve handle(s) to verify proper
operation. Once proper operation has been
[[Page 53323]]
verified, the valve(s) should be closed and secured, as appropriate.
3. ensure that the tank has its bottom outlet cap off, or outlet
plug open, during the entire time the tank is being loaded.
4. ensure that bottom outlet auxiliary valve(s) (if a tank car is
so equipped) is open during the entire time the tank is being loaded.
5. ensure that after loading, a tank with a bottom outlet valve
that permits more than a dropping of the liquid contents of the car
with the outlet cap off, or the outlet cap plug open, is not offered
for transportation until proper repairs have been made.
2. Unloading a Railroad Tank Car Equipped With a Bottom Outlet Valve or
Valves
Persons responsible for unloading a tank car equipped with a bottom
outlet valve or valves should:
6. confirm that the bottom outlet valve is closed before loosening
the bottom outlet cap or plug. If it cannot be confirmed that the
bottom outlet valve is closed, the valve cap or plug should not be
removed. Instead, the tank car should be unloaded through the fittings
on top of the car, and corrective action taken to repair the bottom
outlet valve.
7. ensure that during the unloading process, if leakage shows upon
starting the removal of the bottom outlet cap or plug, the cap or plug
should not be entirely unscrewed. Sufficient threads should be left
engaged and sufficient time allowed to permit controlled escape of any
accumulation of liquid in the outlet chamber. If the leakage stops, the
cap or plug may be entirely removed. If leakage continues, further
efforts must be made to seat the outlet valve. If this fails, the cap
must be screwed up tight (or the plug secured), the tank must be
unloaded through the fittings on top of the car, and corrective action
must be taken to repair the bottom outlet valve.
3. Cleaning and Purging of a Railroad Tank Car Equipped With Bottom
Outlet Valves
Persons responsible for the cleaning and purging of tank cars
equipped with bottom outlet valves, should ensure that after the
cleaning and purging process is complete, the bottom outlet valves and
valve assemblies are examined for debris or obstructions prior to
releasing the cars for further transportation.
Sources for Additional Information
Questions concerning the operation and maintenance of bottom outlet
valves should be referred to the car owner for special instructions to
ensure continued reliability of the bottom outlet valve. For specific
literature on loading/unloading tank cars, refer to the AAR's Pamphlet
No. 34 titled, ``Recommended Methods for the Safe Loading and Unloading
of Non-Pressure Tank Cars.''
For purposes of this safety advisory, FRA seeks cooperation from
the entities who are responsible for determining that tank cars are in
proper condition and safe for transportation. FRA will continue to
monitor the status of tank cars equipped with bottom outlet valves in
hazardous materials transportation and will take any necessary
regulatory or enforcement action to ensure the highest level of safety
on the Nation's railroads.
Issued in Washington, DC, on October 9, 2009.
Jo Strang,
Associate Administrator for Railroad Safety/Chief Safety Officer.
[FR Doc. E9-24927 Filed 10-15-09; 8:45 am]
BILLING CODE 4910-06-P