S. 2905 — Pipeline Accountability Act of 2025

This section amends the factors the Secretary of Transportation must consider in prescribing pipeline safety standards (49 U.S.C. 60102(b)(2)) by adding (1) the need to mitigate negative impacts to the global climate and avoid unnecessarily prolonging the life span of fossil fuel infrastructure; and (2) transition plans toward non-emitting alternatives. It also adds a definition of "non-emitting alternative" to the pipeline safety definitions section (49 U.S.C. 60101(a)) as a technological or efficiency-related energy solution that does not entail the use of fossil fuels directly or indirectly related to the greenhouse effect (i.e., electrification, renewable energy sources, networked geothermal systems, storage, efficiency, and behavior change), and makes conforming amendments to paragraph numbering and statutory cross-references.

This section revises the cost-benefit analysis requirements applicable to pipeline safety standards under 49 U.S.C. 60102(b)—which governs regulations issued by the Secretary of Transportation (or PHMSA)—by (1) striking subparagraphs (D) and (E) of paragraph (2) and redesignating subparagraphs (F) through (I) as (D) through (G), and (2) striking paragraphs (3) through (7).

This section revises the Technical Pipeline Safety Standards Committee and the Technical Hazardous Liquid Pipeline Safety Standards Committee, which review proposed safety standards for gas pipelines and hazardous liquid pipelines, as follows: (1) eliminates their designation as peer review committees deemed to satisfy federal peer review requirements; (2) requires the Secretary of Transportation, when selecting two state officials for each committee from government entities, to consult with national organizations representing state commissioners or utility regulators; (3) requires that, of the five industry representatives on each committee, at least three be currently operating natural gas or hazardous liquid pipelines (as appropriate) and at least one have relevant education or background; (4) for the five general public representatives on each committee, prohibits any financial interest in the pipeline, petroleum, ethanol, or gas industries (including direct ownership, consulting fees, wages, or research funding to the individual), requires submission of prior-year financial records to the Secretary for compliance evaluation before appointment and annually thereafter, and authorizes reasonable compensation without conferring federal officer or employee status for committee eligibility purposes; and (5) clarifies that each committee must review proposed standards for transporting gas or hazardous liquid (or related facilities), along with supporting analyses; directs assessment of the proposed standards' strength in promoting safety and protecting the environment (as defined in section 2 of the Pipeline Accountability Act of 2025), eliminating prior consideration of cost-effectiveness. This section also authorizes appropriations of such sums as necessary to carry out the section and its amendments.

This section requires application of pipeline safety standards to existing pipelines (previously nonapplicable), revises the subsection heading from "Nonapplication" to "Application," changes the operative text from "does not apply" to "shall be applied," and adds that the Secretary of Transportation's authority to apply any such standard—including those promulgated prior to enactment—is not limited by a pipeline predating the standard. (Thus, existing pipelines must comply with all pipeline safety standards regardless of issuance date.) As a conforming change, this section strikes one paragraph of 49 U.S.C. 60109(c).

This section establishes requirements for rupture-mitigation valves (or equivalent isolation methods) on covered pipelines—defined as existing or new gas transmission, type A onshore gathering, hazardous liquid, or carbon dioxide pipelines that are 6 inches or greater in diameter—in covered locations, defined as high consequence areas (HCAs; i.e., densely populated areas or environmentally sensitive locations per PHMSA regulations) or locations where a rupture could affect an HCA or class 3/4 location (i.e., areas with 46-100 or 100+ buildings intended for human occupancy, respectively). Operators must fully isolate any ruptured segment in a covered location as soon as practicable but no later than 30 minutes after rupture identification to minimize product release volume and mitigate consequences, with the requirement applying beginning five years after enactment of the Pipeline Accountability Act of 2025. (1) Operators of existing covered pipelines in covered locations must demonstrate compliance capability within five years of enactment; for pipelines later determined to be in covered locations, demonstration is required within five years of that determination (absent a current waiver). (2) The Secretary of Transportation may grant waivers if the 30-minute isolation is operationally, technologically, or economically infeasible (supported by studies), including estimates of isolation time and worst-case rupture consequences developed with local emergency services input, public consultation on rupture risks and isolation time, and—for segments affecting unusually sensitive areas—consultation with environmental and public safety groups. (3) Waivers expire after five years but may be renewed upon new requests (subject to Secretary revisions); operators must review and submit revised waiver requests within 180 days of significant incidents on their network, operational/environmental/organizational changes affecting the segment, or similar events.

This section directs the Secretary of Transportation to complete, not later than 18 months after enactment, a rulemaking on the safety of carbon dioxide (CO2) and hazardous liquid pipelines entitled “Pipeline Safety: Safety of Carbon Dioxide and Hazardous Liquid Pipelines” (Docket No. PHMSA–2022–0125; RIN 2137–AF60), including issuance of a final rule that considers specified measures—such as minimum safety standards for all phases of CO2 pipeline transportation; standards for potential impact areas (i.e., areas where pipeline failure may significantly affect persons, property, or the environment), high consequence areas, and contaminants; effective leak detection (e.g., odorants); fracture propagation protection (e.g., material toughness, fracture arrestors); standards for converting existing pipelines; and emergency response plans—and is responsive to findings in a May 2022 PHMSA report on a CO2 pipeline rupture. The section further directs the Secretary to promulgate additional regulations not later than two years after enactment requiring CO2 pipeline operators to (1) identify and assess geohazards during siting, monitor hazardous conditions, and take preventive or mitigative measures; (2) report locations, transported phases and materials (including contaminants), and inspection methods; (3) meet standards and notifications for non-pure CO2 transport; (4) notify and coordinate with Federal, state, local, and Tribal officials and responders on incidents or accidents; and (5) notify individuals in potential impact areas of CO2 pipeline hazards and rupture response measures. Finally, this section requires the Secretary to provide tailored training and resources to local emergency responders on CO2 pipeline ruptures, including potential impact areas, odorants, health effects of CO2 exposure, and impacts on vehicle functioning. (As background, 49 U.S.C. §60102 requires the Secretary to prescribe practicable minimum safety standards for pipeline transportation and facilities, considering risk-based costs and benefits, to protect life, property, gas/hazardous liquid safety, and the environment.)

This section directs the Comptroller General of the United States to conduct a study on the short- and long-term safety, health, environmental, and climate change impacts and risks of blending hydrogen into existing natural gas systems—including knowledge gaps, safety risks such as leak rates and infrastructure performance, a lifecycle analysis compared to the status quo and other greenhouse gas reduction pathways, and recommendations—and to submit a report to the Secretary of Transportation and appropriate congressional committees within three years of enactment, considering at minimum the July 2022 University of California, Riverside, Hydrogen Blending Impacts Study. It prohibits pipeline operators from transporting hydrogen other than trace amounts as a contaminant through natural gas distribution pipeline systems under the Secretary's jurisdiction until Congress enacts a statute expressly providing for the safe regulation of such blending, except for pipelines specifically designed to transport hydrogen above trace levels and that have done so for at least 10 years as of enactment.

This section modifies the Natural Gas Distribution Infrastructure Safety and Modernization Grant Program—under the Pipeline and Hazardous Materials Safety Administration, which provides grants to natural gas distribution operators to repair, rehabilitate, or replace pipelines for safety and reliability improvements—by expanding eligible activities to include retiring pipelines and acquiring equipment to encourage non-emitting alternatives (i.e., technological or efficiency solutions without fossil fuels linked to the greenhouse effect, such as electrification, renewable energy, networked geothermal, storage, efficiency, or behavior change, including related workforce training); directing the Secretary of Transportation to give additional consideration to applicants paying Davis-Bacon prevailing wages and using apprenticeship programs akin to those under IRC §45(b)(8); and requiring that at least 20% of funds authorized in subsection (c) support non-emitting alternatives. This section further authorizes $200 million annually for the program for FY2027 ($200 million available until September 30, 2036), FY2028 (until September 30, 2037), FY2029 (until September 30, 2038), FY2030 (until September 30, 2039), and FY2031 (until September 30, 2040). (Thus, these funds extend program capacity beyond the original Infrastructure Investment and Jobs Act appropriations.)

This section directs the Secretary to promulgate new, or revise existing, regulations to address underground natural gas storage not later than two years after the date of enactment of this Act. In doing so, the Secretary must review and consider (1) the most recently updated versions of American Petroleum Institute Recommended Practice 1170 (on design and operation of solution-mined salt caverns used for natural gas storage) and Recommended Practice 1171 (on functional integrity of natural gas storage in depleted hydrocarbon reservoirs and aquifer reservoirs) and (2) updates to existing regulations relating to risk management, emergency response, and ensuring that underground natural gas storage wells do not pose undue risks from single points of failure.

This section establishes an Office of Public Engagement within the Pipeline and Hazardous Materials Safety Administration (PHMSA) not later than one year after enactment of the underlying Act. (PHMSA oversees pipeline transportation safety and hazardous materials safety under chapters 51, 57, 61, 601, and 603 of title 49, U.S. Code.) Prior to establishment, the PHMSA Administrator must seek and incorporate public input—prioritizing individuals without financial interests in pipeline, petroleum, ethanol, or gas industries, including environmental justice communities (i.e., communities with significant representation of communities of color, low-income communities, or Tribal and Indigenous communities that experience or risk higher adverse health or environmental effects)—through in-person meetings and submit to the appropriate congressional committees a summary of input received and its integration into the office. (Thus, the Administrator may provide reasonable compensation to facilitate participation by environmental justice communities.) The office is headed by a Director appointed by the Administrator, reporting to the Associate Administrator for Pipeline Safety, who may appoint employees and is responsible for: (1) coordinating public assistance—including financial, technical, and educational aid—with respect to PHMSA authorities via proactive, targeted outreach using accessible communications, in-person and online formats, and translations for impacted populations; (2) conducting ongoing public engagement through varied proactive outreach methods (e.g., postings, signage, mailings, canvassing) especially to environmental justice communities and accessible meetings with accommodations such as translation services, virtual options, transportation funding, food, and caregiving; (3) establishing an independent, neutral process to receive, review, process, and follow up on public inquiries, complaints, and allegations regarding PHMSA activities and regulated entities—including cracks and leaks identified by workers or community members—and assisting in their resolution; (4) publicizing how to file such submissions; and (5) coordinating with the Federal Energy Regulatory Commission, state agencies, and others to direct inquiries outside PHMSA jurisdiction.

This section requires the Secretary of Transportation, when proposing rules or revisions to rules under the pipeline safety chapter, to hold at least one public hearing in addition to providing opportunities for interested persons to make oral and written presentations of views. It also replaces references to the “Secretary of Transportation” with “Secretary” in subsections (d)(1) and (e).

This section revises pipeline safety data disclosure requirements for the National Pipeline Mapping System by adding definitions—including for "covered facility" (covered pipelines as defined in 49 U.S.C. 60109(c)(12)(A), liquefied natural gas pipeline facilities, and underground natural gas storage facilities), "high consequence area," "moderate consequence area," "potential impact area," and "potential impact radius"—and expanding covered facilities to eliminate the prior exception for gathering lines. The section further requires operators of covered facilities to submit additional information to the Secretary of Transportation, including valve locations and types, and to update such information as changes occur (thus, enhancing NPMS data for pipeline integrity management and emergency response). Additionally, the section establishes new public disclosure mandates, requiring operators within one year of enactment to post on publicly accessible websites—and update annually—information on transported substances (including odorants and contaminants), decommissioning plans for abandoned or remediated pipelines, contact information, relevant emergency response plans, building setback requirements from pipelines, and for carbon dioxide pipelines, dispersion modeling results and fatal concentration zones; operators must also provide annual notifications of this information to the Secretary, owners and tenants of potentially impacted residences and commercial structures, and relevant first responders, including descriptions of changes, operator legal duties and recipient rights, and options to request additional data.

This section requires all natural gas pipeline operators to report to the Secretary blended, non-predominant products that exceed 1 percent by volume of the product transported by the pipeline at any point in time. The Secretary may promulgate new regulations or revise existing ones to implement this requirement.

This section directs the Secretary to promulgate or revise regulations within one year of enactment requiring gas pipeline operators to report (1) all gas releases of 50,000 cubic feet or more, regardless of intent; and (2) all incidents resulting in (A) fire or explosion, (B) property damage of $50,000 or more, or (C) bodily harm involving loss of consciousness, necessity to carry a person from the scene, necessity for medical treatment, or disability preventing normal duties beyond the day of the incident.

This section prohibits owners or operators of pipeline facilities from releasing gas or hazardous liquid in a quantity that would require reporting as an incident or accident under pipeline safety regulations (49 U.S.C. Ch. 601). (Thus, such releases are subject to civil penalties, enforcement actions, or other remedies under pipeline safety law.)

This section revises the citizen suit provision governing enforcement of pipeline safety standards (49 U.S.C. 60121) by (1) expanding available relief in private civil actions to all appropriate remedies, including civil penalties and injunctive relief (previously, injunctions only), and authorizing suits against the Secretary of Transportation for failure to perform any nondiscretionary act or duty; (2) adding explicit federal jurisdiction in district courts without regard to amount in controversy or citizenship, venue in the district of violation or the District of Columbia, and a right for the Secretary to intervene; and (3) clarifying that the provision does not restrict other statutory or common law enforcement rights, including those of state, local, or interstate authorities against the United States. (As background, chapter 601 of title 49, U.S. Code, establishes safety standards for pipeline transportation, primarily enforced by the Pipeline and Hazardous Materials Safety Administration.)

This section eliminates the statutory cap on the maximum civil penalty for a related series of violations under pipeline safety enforcement provisions (49 U.S.C. §60122(a)(1)). It requires the Secretary of Transportation to revise Pipeline and Hazardous Materials Safety Administration civil penalty regulations (49 C.F.R. pt. 190, subpart B) accordingly not later than 180 days after enactment.