TOOLKIT FOR HAZARDOUS MATERIALS TRANSPORTATION EDUCATION

This work is sponsored by the U. S. Department of Transportation Pipeline and Hazardous Materials Safety Administration (PHMSA). It was conducted through the Hazardous Materials Cooperative Research Program (HMCRP), which is administered by the Transportation Research Board of the National Academies.

Prepared by 3 Sigma Consultants, LLC 909 Edenbridge Way, Nashville, TN 37215

Module 1: Introduction to Hazmat Transportation

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Learning Outcomes

At the end of this module students will be able to: 1.

2.

3.

4.

5.

6.

Recognize the importance of hazardous materials in meeting societal needs Describe the role of hazardous materials transportation as part of the freight network and logistics supply chain Summarize the regulatory environment under which hazardous materials transportation operates Discuss the need and methods/practices utilized to ship hazardous materials in an efficient, reliable, safe, secure and environmentally-sensitive manner Recall what is involved in responding to and managing an incident Be aware of hazmat transportation workforce development issues 3

Topics

• • • • • • • Hazardous materials and societal needs Hazmat transportation logistics Hazmat legal and regulatory environment Risk management Hazmat transportation incident management Security of hazmat transportation shipments Hazmat transportation workforce development issues 4

What Is a Hazardous Material?

A substance or material, that when transported in commerce, is capable of posing an unreasonable risk to: – Health – Safety – Property – Environment Source: PHMSA, USDOT, July 2012.

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PHMSA Hazmat Classification System

• • • • • •

Class 1: Explosives

1.1 Explosives with a mass explosion hazard 1.2 Explosives with a projection hazard 1.3 Explosives with predominately a fire hazard 1.4 Explosives with no significant blast hazard 1.5 Very insensitive explosives; blasting agents 1.6 Extremely insensitive detonating substances • • •

Class 2: Gas

2.1 Flammable gas 2.2 Non-flammable compressed gas 2.3 Poisonous gas • •

Class 3: Flammable & Combustible Liquid

• •

Class 4: Flammable Solid

4.1 Flammable solid 4.2 Spontaneously combustible material 4.3 Dangerous when wet material •

Class 5: Oxidizing Agent & Organic Peroxide

5.1 Oxidizer 5.2 Organic peroxide • •

Class 6: Toxic & Infectious Substance

6.1 Poisonous material 6.2 Infectious substance (Etiologic agent)

Class 7: Radioactive Material Class 8: Corrosive Material Class 9: Miscellaneous Hazardous Material

Note: Gasoline and fuel oil are considered Class 3 materials; liquefied natural gas and compressed natural gas are considered Class 2 materials.

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Hazardous Materials and Societal Needs

• • • More than 70,000 chemicals are used regularly around the world.

They are used to produce almost everything we use.

Some of these hazardous materials are finished products while others are used as ingredients in producing these products.

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Sample Products Made From Hazardous Materials

• • • • • • • • • • Building insulation Automobile parts Compact fluorescent bulbs Coolant systems Plastic packaging Solar panels Batteries Diesel additives Detergents Paper • • • • • • • • • Air filters Oil spill absorbents, booms and skimmers Drugs and vaccines Medical devices Fertilizers Safe drinking water Clothing Computer parts Soft drinks 8 Source: American Chemistry Council

Hazmat Transportation Logistics

• • • • The transportation of hazardous materials is a major shipping activity involving many freight modes and service providers.

The majority of shipments are made by truck, with pipeline, rail and waterway trips representing longer-haul and larger bulk movements. Hazardous cargo takes on many forms, with unique material properties that require different types of packaging.

A variety of operational issues, particularly involving shippers and carriers, must be considered from a logistics perspective.

Raw Materials Manufacturing Recycling or Disposal Packaging Use

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Generalized Supply Chain Flow Chart

Manufacturer Output/Raw Materials • • • • • Transportation Truck (Highway) Rail Water/Ocean Air Pipeline Unloading Storage Storage Loading Customer

Hazmat Transportation Modes

Truck Rail Air Pipeline Water 11

Various Types of Hazmat Packaging

Drums Special Containers Boxes Tanks Cylinders

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Economic Considerations – Dry Cargo Capacity Efficiencies Among Surface Transportation

Source: C. James Kruse, et. al., A Modal Comparison of Domestic Freight Transportation Effects on the General Public: 2001-2009, Prepared by the Center for Ports and Waterways, Texas Transportation Institute, Houston, Texas, 2012, p. 2. Prepared for the National Waterways Foundation. 1750 Short Tons is the standard dry bulk cargo capacity for a single barge.

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Economic Considerations – Liquid Cargo Capacity Efficiencies Among Surface Transportation

Source: C. James Kruse, et. al., A Modal Comparison of Domestic Freight Transportation Effects on the General Public: 2001-2009, Prepared by the Center for Ports and Waterways, Texas Transportation Institute, Houston, Texas, 2012, p. 2. Prepared for the National Waterways Foundation. 27,500 BBL is the standard liquid bulk cargo capacity for a single barge.

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Economic Considerations – Fuel Efficiency Comparisons Among Surface Transportation

Ton-Miles per Gallon of Fuel: 2009

Source: C. James Kruse, et. al., A Modal Comparison of Domestic Freight Transportation Effects on the General Public: 2001-2009, Prepared by the Center for Ports and Waterways, Texas Transportation Institute, Houston, Texas, 2012, p. 5. Prepared for the National Waterways Foundation.

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Environmental Considerations – Greenhouse Gas Emission Comparison Among Surface Transportation

Metric Tons of GHG per Million Ton-Miles (2005 & 2009)

Source: C. James Kruse, et. al., A Modal Comparison of Domestic Freight Transportation Effects on the General Public: 2001-2009, Prepared by the Center for Ports and Waterways, Texas Transportation Institute, Houston, Texas, 2012, p. 5. Prepared for the National Waterways Foundation. GHG is Greenhouse Gas Emissions.

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U.S. Freight Transportation Infrastructure

• • • • • Roads – Over 4 million miles of public roads – 164,000 miles of roads comprising the National Highway System, including over 47,000 miles of Interstates Rail – Over 250,000 miles of track, including yards, sidings and parallel lines – Nearly 95,000 miles of Class I railroad track Waterway – Over 13,000 miles of inland waterways, including rivers and Great Lakes – Nearly 300 major commercial ports Pipeline – Roughly 1.7 million miles of oil and gas pipelines Air – Over 13,000 airports 17 Sources: FHWA Freight Facts and Figures 2011, North American Transportation Statistics Database

U.S. Hazardous Material Shipment Characteristics 2007

• Over 2.2 billion tons of hazardous materials are transported every year, valued at over $1.4 trillion.

• This corresponds to 323 trillion ton-miles of hazmat cargo moved annually • The average trip distance of these shipments is 96 miles.

• Hazmat transportation represents roughly 18% of total tons transported by freight industry and accounts for nearly 10% of the ton-miles.

18 Source: 2007 Commodity Flow Survey

Considerations in Transporting Hazardous Materials

• • • • • Efficiency – Move hazardous cargo so as to minimize travel time and cost Reliability – Deliver hazmat shipments on schedule Safety – Avoid incidents (including accidents), particularly those that could cause a hazmat release – Respond effectively when incidents do occur Security – Prevent hazmat from being purposely used as a weapon or detonating device Environmental Protection – Limit air, land, water and noise pollution 19

Factors Affecting Hazmat Mode Choice

• • • • • • • • • • Travel time and service reliability Total logistics costs Safety and security Shipment size and weight Hazardous materials properties and composition Container characteristics Availability of infrastructure access/egress Equipment availability Local restrictions (e.g., bridges, tunnels, highway weights) Intermodal considerations 20

Route Selection Factors

• • • Efficiency – Trip length – Travel time – Availability of diversion route – Access to enroute storage and repair facilities Safety & Security – Condition of infrastructure – Height, width, weight and traffic conflict considerations – – – Accident likelihood Population exposure Number of transfers – – Proximity to critical infrastructure and iconic targets Emergency response capability – Safe stopping places Environmental – Wildlife and vegetation exposure – Soil composition – Proximity to surface and ground water 21

Hazmat Legal and Regulatory Environment

• • • • • • The hazmat regulations (HMR)are both comprehensive and complex, and cover all aspects preparing and executing hazmat shipments.

Shippers, carriers, and all other parties involved in making hazmat shipments must comply with the HMR and other regulations.

Regulations are regularly updated and changed; therefore, one must access them frequently to stay in compliance.

The packaging and handling regulations guard against accidental release of hazmat during storage and transport.

The extensive regulations on shipping papers, marking, labeling, and placarding are designed to facilitate hazard communication.

Enforcement of the hazmat regulations is a joint effort of multiple agencies.

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Hazmat Transportation Regulations

• • • • • Primarily contained in the Code of Federal Regulations, 49 CFR Parts 171-180.

Specify requirements for the safe transportation of hazardous materials in commerce by rail car, aircraft, vessel, motor vehicle and pipeline.

Apply to any person involved in functions related to the transportation of hazardous materials.

Prescribe requirements for classification, packaging, hazard communication, incident reporting, handling and transportation of hazardous materials.

State, local and tribal regulations may also be enacted providing that they do not conflict with Federal regulations. 23

The Hazardous Materials Regulations (HMR)

• • • • • • • • • • 49 CFR 171 through 180 171 General information, regulations, and definitions 172 Hazardous materials table, special provisions, hazmat communications, emergency response, training 173 Shippers and packaging 174 Carriage by rail 175 Carriage by aircraft 176 Carriage by vessel 177 Carriage by public highway 178 Specs for packaging 179 Specs for tank cars 180 Continuing qualification and maintenance of packagings Source: PHMSA, USDOT, July 2012.

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Other Regulatory Requirements, Standards, and Guidelines

• • • • • • • •

DOD DOE/NRC STB OSHA NLRB Military shipments Nuclear materials Commercial transportation Worker health and safety Organized labor NFPA USDA First responder safety and health Invasive species State-level hazmat compliance programs

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Risk Management

• • • • • • • Hazmat transportation events occur that put people, property, and the environment at risk Many incidents are minor Risk management can be used to minimize the impacts of these incidents Even at best, risk management cannot prevent every incident Risk management includes identification, analysis, evaluation, and monitoring Risk analysis can be either qualitative or quantitative Multiple tools and programs exist that can assist with risk management efforts 26

Potential Impacts of a Hazmat Release

• • Human health – Acute fatality/injury – Reproductive failure and birth defect – – – – – Cancer Impaired immune system Respiratory illness Cardiovascular disease Effects of contaminated drinking water Environment – Crop and vegetation destruction – Damage to fish/birds/mammals and their habitats – Endangered species and loss of plant/animal diversity – Soil degradation – Disruption of food chain – Water contamination *Impact severity will depend on the duration and rate of exposure (dose) and the manner in which the recipient reacts when subjected to that dose (response).

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Incident vs. Accident

• Accident – used to describe things that happen unintentionally • Incident - has a wider meaning and can be used both for accidents and for intentional actions such as crimes. Note: Accidents are considered a subset of incidents.

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Hazmat Incident Occurrences

• • Many incidents occur each year in all modes of transportation with varying degrees of severity Many are minor and do not make headlines 29 Source: PHMSA

Hazardous Materials Transportation Incidents, Injuries and Fatalities: 2011 Highway

Accident related Injuries Fatalities

Rail

Accident related Injuries Fatalities

Air

Accident related Injuries Fatalities

Water

Accident related Injuries Fatalities

Pipeline

Injuries Fatalities

12,801

332 129 11

743

40 20 1

1,400

2 7 0

71

0 8 0

596

60 14 • • Less than 10% of large truck shipments include hazmat as all or part of the cargo load.

In contrast, less than 5% of large truck accidents involve trucks carrying hazmat. Notes: Accident -related excludes human errors and package failures. Water data are for incidents involving packaged materials only and do not include incidents where the vessel is the container (e.g., a barge or oil tanker). Non-pipeline reporting requirements changed in 2002. Source:,

Accident/Incident Summary Statistics

, available at http://www.phmsa.dot.gov/pipeline/library/data-stats. 30

2011 Hazmat Incidents by Material Type

Material

Flammable-combustible liquid Corrosive material Combustible liquid Non-flammable compressed gas Oxidizer Flammable gas Poisonous material Other

Percent of Total

48.9

24.8

6.7

3.6

3.5

2.2

2.2

8.1

Source: PHMSA 31

Source: PHMSA

Hazmat Incidents by Transport Phase

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What are Risks and How do we Manage Them?

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Risk

- The potential for an unwanted outcome resulting from an incident as determined by its likelihood and the associated consequences.

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Risk Management

well-being or a strategies.

- A

method process

for identifying, assessing and reducing risks to public safety and security, environmental quality and economic for prioritizing risk management needs and evaluating risk control 33

Fundamental Questions of Risk Management

• What can go wrong?

• How likely is it?

• What are the consequences?

• How can we use available resources to most effectively control undesirable risks?

http://www.math.ucsb.edu/~atzberg/fall20 05/index_files/financialRisk.jpg

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Types of Risks Associated with Hazmat Transport

• • • • • • Operational – Failed procedures – Improper packaging Information Systems – Improper tracking, marking or documentation Environmental – Population/carrier/environmental exposure Human Resource – Unqualified drivers/handlers Security – Theft or malicious acts Reputational – Bad corporate reputation – Loss of customers 35

Hazmat Transport Risk Factors

• • • • • Vehicle – Configuration, weight Operator – Age, experience, condition, training, valid license Packaging – Type, age, protection Infrastructure and equipment – Type, condition, use Situational – Speed, weather, lighting, time-of-day, maneuvering, impact location Source: Battelle, Hazardous Materials Transportation Incident Data for Root Cause Analysis, HMCRP Report 1 36

The Corporate Risk Pyramid – Varying Levels of RM

Company Specific RM Activities Company Policies Industry Practices Regulations 37

PHMSA’s Stepwise Approach to Risk Management for Hazardous Materials Transport

Source: http://phmsa.dot.gov/staticfiles/PHMSA/DownloadableFiles/Files/risk_framework.pdf

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Risk Heat Map – A Way to Rank and Prioritize Risks

Very High High Medium

High Medium Medium Low High Very High High Medium Medium Very High Very High High

Low

Low Low Medium High

Low Medium High Very High Likelihood

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Risk Reduction Strategies

• Reduce likelihood of an incident occurring – – – Avoid routes with poor terrain or known hazards Train employees on proper handling and packaging Regularly inspect packages and vehicles/vessels • Reduce potential consequences if an incident occurs – Avoid routes that pass through highly populated or environmentally sensitive areas – – – – Train employees to contain spills quickly Have well documented emergency procedures Proved PPE to employees to minimize exposure during leakage Keep spill cleanup equipment on vehicles/vessels at all times 40

Risk Communication Roles and Responsibilities

• Risk communication is necessary at various times in a hazmat shipment’s lifetime – Prior to an event – During an event (response) – Following an event (recovery) • Multiple stakeholders (audiences) are involved at each stage and require certain information – Internal stakeholders – Business partners (e.g., shippers, carriers, customers) – Regulators – Emergency responders – Potentially impacted communities – Media 41

Hazmat Transportation Incident Management

• • • • • • The adverse consequences of incidents depend on decisions and actions during incident management. Hazmat transportation incident response requires a structured but flexible approach. While incident response is primarily a local responsibility, national procedures apply and resources are available. Mutual aid can be important. Successful incident management requires coordination among many stakeholders, including first responders, fire services, hazmat response teams, emergency managers, carriers and shippers. An all-hazards approach that includes mitigation, preparedness, response, recovery and prevention helps ensure success. Hazmat transportation incidents often require specialized equipment, highly trained personnel, effective leadership and difficult decisions.

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Goal: Minimize Adverse Consequences

Accident; human error; equipment, packaging, or infrastructure failure; purposeful act; weather; combinations of factors Leak, spill, fire, explosion, exposure, dispersion Initial injuries or fatalities; property or environmental damage; other damages/costs

minutes

Incident Management

minutes, hours, days, weeks

Final Consequences Injuries and fatalities; property or environ mental damage; other damages/costs

+ Intangibles

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Category

Potential Consequences

Description

Injuries and fatalities Property damage Environmental damage Transportation workers, incident responders, general public; direct and indirect (e.g., stress, secondary crashes) Damage to vehicles (carriers and others), transportation infrastructure, utilities, neighborhoods, businesses, public facilities Air, ground and/or water contamination with immediate or extended impacts on human health, flora, and/or fauna Product loss Emergency response Evacuation/ disruption Transportation system impacts Cleanup Intangibles Loss of the material/product being transported Costs to emergency responders and, for major events, other state and federal agencies, NGOs, and private sector responders Costs to people displaced from homes, schools, businesses; interference with normal community activities; loss of business and earnings; potential for regional economic impacts Costs for lost time, missed schedules, wasted resources, increased operating costs for transportation system users Costs of decontamination; removal of absorbed material, damaged equipment, and other debris; disposal Loss of credibility with investors, customers, partners, regulators, employees, media, and others 44

Every Incident is Different

• • • • • • • • Properties and hazards of material involved (if known) Types of equipment and extent of damage Weather (temperature, precipitation, visibility, wind) Topography, natural environment, built environment Proximity of sensitive land uses Responder capabilities and access to the scene Proximity of emergency medical care Useful source: Emergency Response Guidebook (PHMSA) More likely, less severe Less likely, more severe 45

Incident Stakeholders

• • • • • • • • • • • •

Carrier Shipper

Fire and rescue Law enforcement

Towing and recovery

Emergency medical

Hazmat response team

Hazmat cleanup contractor

Emergency managers Environmental agencies Public works

Utility companies

Bold = private sector Red = public sector Italics/blue = public and/or private • • • • • • • •

Truck driver, train/marine/aviation crew, other operating personnel

Operators/occupants of other involved vehicles/equipment Transportation infrastructure owner/operator Other transportation system users Impacted neighborhoods, schools, businesses, and other land uses

Insurers

News media

Other

(e.g., 911; National Response Center; elected officials; LEPCs and SERCs; USDOT, USCG, EPA, NRC, DOD, and other federal and state agencies; industry organizations) 46

All-Hazards Approach

Mitigation Activities taken to avoid or reduce the severity or consequences of an emergency Preparedness Activities, tasks, programs and systems developed and implemented prior to an emergency . . . to support prevention, mitigation, response and recovery Response Immediate and ongoing activities, tasks, programs and systems to manage the effects of an incident that threatens life, property, operations or the environment Recovery Activities and programs . . . to return conditions to a level that is acceptable to the entity Definitions from NFPA 1600®, Standard on Disaster/Emergency Management and Business

Continuity Programs

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NRF, NIMS and ICS

NRF provides structure and mechanisms for national-level policy for incident management National Response Framework (NRF) Other Components Incident Command System (ICS) NIMS provides the template for the management of incidents National Incident Management System (NIMS) Incident Command System (ICS) Other Components ICS is to organize on-scene operations for a broad spectrum of emergencies from small to complex incidents 48

Response and Recovery Transitions

100% 0% Infrastructure owners/operators, public works, utility companies, environmental organizations, ………………….

land use planners and boards, Fire services, EMS, schools, other institutions, home HMRTs, law enforcement, emergency managers, and owners, businesses, chambers, …..

economic developers, land supporting agencies (perhaps owners, attorneys, banks, . . . National Guard, Coast Guard, other state and federal agencies, mutual aid) Elected officials hours, days Response days, weeks Short-Term Recovery weeks, months, years Long-Term Recovery 49

Security of Hazmat Transportation Shipments

• • • • • Hazmat shipments and facilities are a security concern because of their potential to be used as means of attacking other targets.

Measures that improve cargo security in general are equally applicable to hazmat shipment security.

The most effective security enhancement procedures are multi-layered systems that address each aspect of vulnerability.

En route security is challenging due to the many uncontrolled factors involved.

Industry and government are cooperating to enhance hazmat security.

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Focus Areas for Securing Assets in Transport

• • • • • Maintain chain of custody Confirm security practices of partners in chain Verify credentials of personnel in chain Verify controlled physical access to assets Emergency preparedness/resilience/redundancy 51

Source: FMCSA

Chronology of Security Needs

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Types of Security Technologies

• • • • • • • • • • Communication Panic buttons Driver identification and authentication Electronic supply chain manifest Remote vehicle disabling Remote cargo door locks Electronic cargo seals Geofencing Cargo tracking Public sector reporting 53

Hazmat Transportation Workforce Development Issues

• • • • The volume of hazardous materials carried by the U.S. transportation network will continue to increase, as will the employment demand.

Educational programs should be available for post secondary students through graduate school to develop awareness, knowledge and skills related to hazmat transportation.

As most hazardous materials transportation positions are filled from within an organization, education and training opportunities must be provided to maintain knowledge levels and support staff promotion and retention.

Given these diverse needs, a hazmat transportation curriculum tool kit that is comprehensive yet adaptable should be maintained and broadly disseminated.

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Transportation Work Force Challenges

• • • Competitive labor market within transportation industry and among other industry sectors Demographic changes in the work force Introduction of new technologies Source: NCHRP Report 685, Strategies to Attract and Retain a Capable Transportation Workforce, 2011 55

Multiple Responsibilities of Hazmat Transportation Workforce

• • • • • • • • Training Logistics Package design Regulatory enforcement Safety Risk analysis Incident response Represent organization in professional forums

Alternative Career Paths in Hazardous Materials Transportation

      Engineering  Environmental  Chemical  Civil and environmental  Mechanical  Systems  Industrial Environmental and health science Chemistry Business  Supply chain and logistics  Management/business administration Information science Other (e.g., agriculture, construction, military) 57

Retention and Promotion

• • • This is key as most positions are filled from within organizations.

Offer education and training opportunities, specifically in areas such as transportation basics, environmental science, and chemistry.

Provide opportunities for professional growth and advancement.

– Advanced degrees – – – Professional certification Executive management training Membership and involvement in professional organizations 58

Key Takeaways

• • • • • Hazardous materials are an essential part of producing goods that meet society’s needs.

Thousands of different types of hazardous cargo are shipped as part of the hazardous materials life cycle, moved across an extensive network by truck, rail, waterway, air and pipeline.

While it is important that these shipments are made efficiently and reliably - safety, security and environmental protection are significant considerations. This applies to both incident prevention and mitigating the consequences of an incident should one occur.

Federal, state, local, tribal and international standards and regulations have been established to promote trips that are incident free or successfully mitigated should an event occur.

Developing and retaining a qualified workforce for hazardous materials transportation is a continuous challenge.

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Student Exercise

Prepare a two-page memo describing: 1) How chlorine is used in our society to meet our needs 2) The manner in which it is packaged and transported 3) The potential health effects of chlorine exposure 4) The consequences of a particular incident that occurred in the past involving the release of chlorine while the shipment was in transport 60

Resources for Support and Additional Learning

Other Course Modules • • • • • • • Hazmat transportation logistics Hazmat legal and regulatory environment Mode and route selection Risk management Hazmat transportation incident management Security of hazmat transportation shipments Hazmat transportation workforce development issues 61