DAMAGE PREVENTION

Striking a utility line –whether during back yard projects or large excavation work – can have disastrous results if proper procedures are not followed before digging.

Background

Well over 20 million miles of pipelines and other utilities run underneath homes and businesses, providing essential services to run all aspects of life from oil and natural gas pipelines, electrical power lines, water systems, telecommunications lines, cable television systems and more.

In fact, there are more than two million miles of gas distribution lines alone in the United States. While any damage to an underground utility can create serious danger, this is especially true of gas distribution lines, because they are predominantly located in highly populated urban or sub-urban areas, and transport highly explosive natural gas.

According to the Pipeline and Hazardous Materials Safety Administration (PHMSA), there were 1,438 significant gas distribution line incidents over the past 20 years (from 1999-2018). These incidents accounted for 208 fatalities, 983 injuries and approximately $2 billion in property damage.

While damage to other utilities may not be as risky to human life and safety, the economic consequences are equally serious, and excavation damage is the predominant culprit. The primary problem is a simple lack of best practices, regarding the use of available technologies and communication tools among stakeholders.

For example, despite significant improvements in GPS mapping technologies in recent years, incident rates have not kept pace. Increased use of the best available digital mapping technologies, improved communication between all parties (including utilities, excavators, locators), and stronger regulatory enforcement will go a long way in reducing the frequency and severity of incidents.

The Challenge

The underground utility network is, by nature, difficult to locate and track. Perhaps the greatest challenge is ensuring that all parties communicate their collective knowledge of the location and properties of underground utilities with each other and more importantly, to the individuals performing the excavation work. Properly locating, identifying, and communicating the location of underground utilities should significantly reduce the risks of accidental damage.

Under the current system, excavators call in a ticket to a state-specific call center to notify all utilities operating in the area when and where they plan to excavate. These utilities then mark the facilities themselves or send a locating firm (private contractors) to the work site to mark where their underground utility lines are buried. One method of this communication is to physically mark the ground with paint. When instituted, this method led to many improvements, but it is still subject to problems caused by inclement weather, or other disturbances, including other excavation projects on or near the same utility.

These markings are the only communication between the utility and their contractors, and the excavators performing the work. One of the largest benefits of recent technological breakthroughs is the exponential improvement in our ability to share information with multiple parties immediately and simultaneously. This begs the question of why the industry is not using the best available technology to communicate the location of underground utilities. This is a careful question to consider when facing accidents that can potentially cause death, serious injury, or millions of dollars in property damage.

Latest Preventable Excavation Damage Across America

  • Contractor fined in near-miss of Westby gas line; case prompts calls for new legislation [Wisconsin State Journal]
  • OSHA fines LEAP and Techno Metal Post for ‘serious’ safety violations in connection with Farmington explosion [CM]
  • Howland road reopens after gas line struck [WKBN 27]
  • ‘I’m frightened’: City to shut down dangerous digging in Philly yard [WHYY]
  • Texas Gas Service: line damaged by contractor [CBS 4 Valley Central]
  • What a federal investigation into the Firestone, Colo., home explosion found [KUNC]
  • Gas line damaged during excavation in Haverhill, Mass. [The Eagle Tribune]
  • Residents evacuated and roads closed after contractor causes gas leak in Durham, N.C. [The News & Observer]
  • Construction may play a part in rise of gas leaks in North Carolina [WCNC News]
  • Three companies cited by labor department following deadly Durham, N.C., gas explosion inspection [ABC 11 News]
  • Gas leaks caused by work crews in Charlotte, N.C., up 40% from last year, officials say [WSOC-TV]
  • Gas leak leads to Orono, Maine, apartment complex evacuation [Sun Journal]
  • Closed by the Durham, N.C., gas explosion, St. James Seafood aims to reopen early next year [The News & Observer]
  • PG&E admits safety violations; agrees to pay $65M to settle California records claims [ABC 10]
  • Columbia Gas ordered to stop work in Massachusetts [The Eagle-Tribune]
  • Norfolk, Va., fire-rescue responds to two natural gas leaks at opposite sides of city [WTKR-TV]
  • Construction crew hits gas line causing Eldersburg, Md., leak, road closure [Carroll County Times]
  • Gas leak in Washington, D.C., prompts evacuations and Metro delays [The Hill]
  • Onset, Mass., fire department responds to gas leak [CapeCod.com]
  • Gas leak forced evacuations at Fairlawn Plaza in Topeka, Kan. [WIBW]
  • Massive fire in Dekalb County, Ga., on Memorial Drive sparked by gas leak [CBS 46]
  • Gas outage hits Salem, N.H., after work crews damage line [NBC Boston]
  • Consumers Energy settles case alleging delayed response to MISS DIG calls [Michigan Radio]
  • PG&E facing increased penalties for failing to locate, mark underground natural gas pipelines [Natural Gas Intelligence]
  • Dozens in Southwest Baltimore and Catonsville, Md., lose water service after main breaks [The Baltimore Sun]
  • Gas leak shuts down busy south Charlotte, N.C., road [WCNC]
  • Gas site visits in Massachusetts lead to eye-opening observations [WWLP]
  • Damaged gas line causes dozens of Lansing, Mich., residents to lose heat [FOX 47]
  • WECT Investigates: Penalties for contractor who ruptured utility lines, snarled traffic in North Carolina [FOX Wilmington]

The Solution

First, the best way to eliminate or reduce the number of incidents is to ensure that all parties have access to the best available information at an excavation site. The most ideal way to do this is to create and share digital maps of each dig site to identify the locations of all underground utilities. This information should be shared by all parties. Excavators on site should compare the digital map with what they are seeing in real time at the worksite prior to beginning excavation.

Further, states should ensure that the dig laws and best practices in place within their state are current and strictly enforced while making use of the best available safety tools. States should also review all standing exceptions to dial-before-you-dig laws and determine whether these exceptions create a safety risk.

Finally, ensure the timely reauthorization and appropriate funding for the Pipeline and Hazardous Material Safety Administration (PHMSA), which regulates and oversees pipeline safety and certain underground utilities.

PHMSA’s authorization expired on September 30, 2019. Congress has not acted to reauthorize the agency or implement any new policies to respond to changing circumstances.

 

IS THIS THE BEST WE CAN DO? THE ANSWER IS CERTAINLY – NO

 

  • Utilities need to take some responsibility for ensuring locating firms are using the best available technologies. They should also provide the most recent maps of their underground networks to the locators and the excavators.
  • Locating firms need to do more than spray several lines of paint on the ground – they should provide digital maps of the dig site to all parties and clearly mark the utility lines on the images as well as the location and distance between any structures or other visible markers.
  • Excavators need to notify One Call centers on any and all projects and should not assume that an exemption applies. They also need to be proactive in following up if a site description is confusing or the painted lines and flags create uncertainty about utilities in the dig area. Also, reviewing digital communications and comparing them to existing facility maps will help identify inconsistencies within the maps.
  • States need to update regulations and ensure that best practices are reviewed periodically. They also need to review any standing exceptions to their respective “dial before you dig” laws and ensure these exceptions promote safety. Finally, states need to strictly enforce the regulations that are on the books and assess penalties accordingly.
  • One Call centers need to be more proactive in upgrading their technologies to ensure that they are providing locators and excavators with the most accurate information possible. They should also provide all relevant parties with an unalterable electronic image of the site, rather than writing out a description in text.

 

THESE COMMUNICATIONS IMPROVEMENTS ALONE WOULD REAP LARGE BENEFITS.

 

  • One Call centers and locating companies could provide excavators with far more accurate site descriptions and utility line markings.
  • Excavators could compare the images and markings provided by the locators with utility maps, spot any potential inconsistencies, and contact the utility for clarification prior to arriving at the dig site.
  • At the dig site, excavators could use the images to ensure that everything is where it is supposed to be, prior to breaking ground.
  • Excavators could record where they install new facilities on digital maps, thereby improving the records and communications process going forward.

POLICY BRIEFS

Best Practices to Achieve Excavation Safety

Strong state Damage Prevention programs are critical to protecting underground infrastructure and civilian safety. Excavation damage continues to be a leading cause of pipeline incidents in the U.S. – some of which lead to destruction of property, injury, and in the worst cases, fatalities. Further, hundreds of thousands of other underground facilities, including water lines, sewer lines, telecommunications infrastructure, and power lines, are damaged each year during excavation leading to outages, lost productivity, and delayed construction schedules…

READ MORE

Pipeline and Hazardous Materials Safety Administration Reauthorization

The Pipeline and Hazardous Materials Safety Administration (PHMSA) is the entity within the United States Department of Transportation (USDOT) responsible for “protect[ing] people and the environment from the risks of hazardous materials transportation.” As the Nation’s lead hazardous materials regulator, PHMSA sets and enforces policies and standards, educates the public about hazardous materials transportation, and conducts research to prevent incidents…

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WHITE PAPERS

NEW REPORT: Improving Upon Our Dig Laws: Excavation Damage, Data, and Trends for Industry and Policymaker Analysis (April 2020)

This paper continues that review and analysis by looking at the data behind the most recent annual report, Damage Information Reporting Tool, Volume 15 (2018). Here, we highlight the increase in estimated damages and discuss the root causes that continue to lead to damage incidents. Finally, we make recommendations for state and federal regulators regarding public safety and damage prevention; and we recommend options for CGA to improve data collection, analysis, and display…

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Improving Upon Our Dig Laws: How State Legislatures Can Help Us Dig Safer

The Common Ground Alliance’s DIRT reports are an invaluable tool in helping industry and policy-makers better understand excavation damage incident trends, causes, and more. This report reviews and analyzes the data behind the most recent annual damage prevention data reports, Damage Information Reporting Tool, Volume 11 (2015) and Damage Information Reporting Tool, Natural Gas Distribution Facilities Report (2016), provides insight into what conclusions can and can’t be drawn, and makes recommendations on where to focus future efforts to improve excavation safety…

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Damage Prevention Report Card

Technology plays a pivotal role in making everything we do easier, safer, and more efficient. While each of us notices how much technology can improve the convenience of our daily life, few pay attention to how it makes us safer as well. Technological advances in medicine have helped people to live longer and healthier lives. Technological advances in transportation networks have improved the safety of moving passengers, goods and services by air, rail, or pipeline. They have even helped keep our country safer by allowing us to protect critical information and identify potential future threats to our security…

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POLICY BLOG

Its Time for Nationwide Adoption of Enhanced Positive Response

As technology improves, law and regulation must improve for the sake of public safety. Excavation damage has been a leading – and in many years the leading – cause of pipeline incidents for decades. More than ten years ago, Congress addressed what was then the leading contributor to these incidents at the time – an excavator’s failure to notify the pipeline’s operator of the planned excavation. The lack of a uniform method of communication between pipeline operators and excavators made it nearly impossible for pipeline operators to provide excavators the location of underground pipeline facilities prior to the excavator putting a drill in the ground…

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PHMSA Study: Wider Adoption Of Technology, Stronger Enforcement Critical To Improving Pipeline Safety

Last June, Congress passed and the President signed the Protecting our Infrastructure of Pipelines and Enhancing Safety Act of 2016 (PIPES Act). Among the bill’s numerous other provisions was a hidden gem. Congress asked the Pipeline and Hazardous Material Safety Administration (PHMSA) to conduct a study on how new technologies can improve excavation safety by more accurately locating and mapping the presence of underground pipelines, and facilitating communication among all parties to an excavation process – locators, excavators, operators, and the quasi-governmental state one-call centers…

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Digging Deeper: Volume 1

“Digging Deeper” is the Alliance for Innovation and Infrastructure’s (Aii) new blog focused on using the Common Ground Alliance’s Damage Information Reporting Tool’s (DIRT) inaugural interactive data dashboard to track indicators, trends, and correlations with the goal of zeroing in on the underlying causes of excavation damage incidents. It is worth noting that all of the data reflected in DIRT’s dashboard, and consequently “Digging Deeper” was submitted voluntarily…

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DIRT Blog Update

Last summer, we published “Improving Upon Our Dig Laws: How State Legislatures Can Help Us Dig Safer,” where we performed an extensive review of the incident data revealed in the Common Ground Alliance’s (CGA) 2014 DIRT report (released in Fall 2015), offered some recommendations states could incorporate into their Damage Prevention programs to improve excavation safety, and offered recommendations CGA could implement to make the data more user friendly…

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Phone to Internet: A Sign of Things to Come in Excavation Safety?

As technology continues to improve, the manner in which we use the Internet, TV, water, electricity, and other utilities has changed dramatically. The Internet allows us to watch movies or find answers to any question online in a moment. High definition TV make it possible to track a puck with…

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Pipeline Safety Legislation Inches Closer to Becoming Law

Pipeline safety reauthorization legislation cleared another crucial hurdle on its way to the President’s desk on Wednesday when the U.S. House of Representatives (House) Committee on Energy & Commerce (Energy & Commerce) reported their version of the bill out of the full committee…

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New Training Program Another Step in the Right Direction for Damage Prevention Efforts

Reducing, and eventually eliminating, instances of excavation damage should be the underlying goal of every Damage Prevention program. There are a number of parties involved in every excavation project – facility owners and operators, locate companies, One Call centers, and excavators. Plus, there are multiple governmental bodies and industry groups who set rules and best practices that contribute to any given Damage Prevention program…

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Calling on Congress to Acknowledge Excavation Damage for PHMSA Reauthorization

As Congress prepares to vote on the reauthorization of the Pipeline and Hazardous Materials Safety Administration (PHMSA) at the end of this month, the Alliance for Innovation and Infrastructure (Aii) wants to be sure members of Congress pay special attention to the primary cause of pipeline incidents in the United States – excavation damage…

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The Hidden Cost of Outdated Damage Prevention Laws

Tracking Report

(Source: PHMSA)

Resources