Understanding Pennsylvania's Underground Storage Tank ...
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University of Pennsylvania University of Pennsylvania
ScholarlyCommons ScholarlyCommons
Master of Environmental Studies Capstone Projects
Department of Earth and Environmental Science
2010
Understanding Pennsylvania's Underground Storage Tank Understanding Pennsylvania's Underground Storage Tank
Regulations; A Guidance Document for Storage Tank Owners and Regulations; A Guidance Document for Storage Tank Owners and
Operators Operators
Julie Baniewicz University of Pennsylvania
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Part of the Environmental Sciences Commons
Baniewicz, Julie, "Understanding Pennsylvania's Underground Storage Tank Regulations; A Guidance Document for Storage Tank Owners and Operators" (2010). Master of Environmental Studies Capstone Projects. 25. https://repository.upenn.edu/mes_capstones/25
Presented to the Faculties of the University of Pennsylvania in Partial Fulfillment of the Requirements for the Degree of Master of Environmental Studies 2010.
This paper is posted at ScholarlyCommons. https://repository.upenn.edu/mes_capstones/25 For more information, please contact [email protected].
Understanding Pennsylvania's Underground Storage Tank Regulations; A Understanding Pennsylvania's Underground Storage Tank Regulations; A Guidance Document for Storage Tank Owners and Operators Guidance Document for Storage Tank Owners and Operators
Abstract Abstract This capstone project is a proactive approach to addressing a problem observed in many underground storage tank facilities; owners and operator failure to understand the Pennsylvania state regulations. The Pennsylvania Department of Environmental Protection (PA DEP) enacted the Storage Tank and Spill Prevention Act in 1989. Now, twenty years later, government regulators are still struggling to achieve a high rate of compliance at storage tank facilities. Most of the non-compliant storage tank facilities in question are gas stations. Some of the factors contributing to the non-compliance are: limited understanding of the English language; complexity of the regulations; constant evolution of the regulations; and the ignorance of responsibility and consequences. In many cases, these impediments lead to an apathetic attitude toward the requirements. I have created a plain-language guidance document that explains storage tank systems and key regulations. My goal is to have the document published by the PA DEP so that it may be handed out to the regulated community. Over the next few years, Pennsylvania will be implementing a federally mandated operator training. This document would be a great complement to the training goals of the federal and state government agencies. In addition, achieving compliance at underground storage tank facilities is of great importance for protecting our groundwater supplies. Pennsylvania has had over 14,000 releases of regulated substances from storage tanks since 1989. Groundwater is an extremely valuable resource for drinking water purposes as well as for the natural environment. My document will assist storage take owners and operators in understanding the regulations, which will lead to a greater level of compliance with the regulations, and fewer release incidents.
Disciplines Disciplines Environmental Sciences | Physical Sciences and Mathematics
Comments Comments Presented to the Faculties of the University of Pennsylvania in Partial Fulfillment of the Requirements for the Degree of Master of Environmental Studies 2010.
This thesis or dissertation is available at ScholarlyCommons: https://repository.upenn.edu/mes_capstones/25
UNDERSTANDING PENNSYLVANIA’S UNDERGROUND STORAGE TANK REGULATIONS; A GUIDANCE DOCUMENT FOR STORAGE TANK OWNERS AND OPERATORS
Julie Baniewicz
Spring 2010
Stanley Laskowski
Kathy Nagle
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Abstract
This capstone project is a proactive approach to addressing a problem observed in many
underground storage tank facilities; owners and operator failure to understand the Pennsylvania
state regulations. The Pennsylvania Department of Environmental Protection (PA DEP) enacted
the Storage Tank and Spill Prevention Act in 1989. Now, twenty years later, government
regulators are still struggling to achieve a high rate of compliance at storage tank facilities. Most
of the non-compliant storage tank facilities in question are gas stations. Some of the factors
contributing to the non-compliance are: limited understanding of the English language;
complexity of the regulations; constant evolution of the regulations; and ignorance of
responsibilities and consequences. In many cases, these impediments lead to an apathetic
attitude towards the requirements. I have created a plain-language guidance document that
explains storage tank systems and key regulations. My goal is to have the document published
by the PA DEP so that it may be handed out to the regulated community. Over the next few
years, Pennsylvania will be implementing a federally mandated operator training. This
document would be a great complement to the training goals of the federal and state government
agencies. In addition, achieving compliance at underground storage tank facilities is of great
importance for protecting our groundwater supplies. Pennsylvania has had over 14,000 releases
of regulated substances from storage tanks since 1989. Groundwater is an extremely valuable
resource for drinking water purposes as well as for the natural environment. My document will
assist storage tank owners and operators in understanding the regulations, which will lead to a
greater level of compliance with the regulations, and fewer release incidents.
iii
TABLE OF CONTENTS
CHAPTER ONE.........................................................................................................................1
Introduction .........................................................................................................................1
Statement of the Problem ....................................................................................................1
Purpose of the Study............................................................................................................1
Need for Research ...............................................................................................................1
Hypothesis ..........................................................................................................................2
Research Questions .............................................................................................................2
Definition of Terms.............................................................................................................2
CHAPTER TWO........................................................................................................................3
Literature Review ................................................................................................................3
Storage Tank Regulation History.........................................................................................3
Groundwater .......................................................................................................................4
Impediments of Compliance................................................................................................4
Operator Training................................................................................................................5
Summary.............................................................................................................................6
CHAPTER THREE ....................................................................................................................7
Research Design & Methodology ........................................................................................7
Proposed Evaluation Design................................................................................................7
Methods ..............................................................................................................................7
Quantitative Analysis ..........................................................................................................8
CHAPTER FOUR........................................................................................................................... 9
Results..................................................................................................................................... 8
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Discussion............................................................................................................................... 8
Conclusion............................................................................................................................... 9
REFERENCES .........................................................................................................................10
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CHAPTER ONE
Introduction
Statement of the Problem
In my four years working in the storage tanks program at the Pennsylvania Department of
Environmental Protection (PA DEP), I have noticed a great need for clear, simple interpretation
of regulations. Storage tank regulations can be confusing and foreign to the regulated
community, which leads to an apathetic attitude. Many times these people ignore the regulations
until an enforcement action is issued. A laymen’s terms guidance document that covers all of the
major requirements, as well as direction on what to do in case of an emergency, would be an
important resource for storage tank owners and operators. A better understanding of their
regulatory requirements would lead to a higher rate of compliance.
Purpose of the Study
I took a proactive approach to improving the regulatory compliance of Pennsylvania
storage tank facilities by developing a guidance document specifically for underground storage
tank owners and operators. The goal of this document is to improve compliance with the state
storage tank regulations by simplifying the requirements and educating the regulated community.
Need for Research
Operator training is a relatively new compliance tactic for state storage tank regulators.
Pennsylvania is currently in the process of developing an operator training program for storage
tank operators. My guidance document would complement this program by serving as a reliable
reference document for the regulated community.
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Hypothesis
Hypothesis:
The document that I produce will improve gas station owner and operator compliance
with the state environmental regulations.
Research Questions
The research questions being investigated are:
1. How can regulations be interpreted in a way that is easy for a layperson to
understand while still upholding legal caveats?
2. What are the most important sections of the storage tank regulations for operators
to understand?
3. What about the regulations is hindering operator understanding?
4. How can impediments to understanding the regulations be overcome?
5. Is understanding the regulations enough to facilitate compliance?
6. What is the benefit of having a guidance document of this type available?
Definition of Terms
Storage Tank Regulations
This term refers to 25 Pa. Code Chapter 245, Administration of the Pennsylvania Storage
Tank and Spill Prevention Act. These are the Pennsylvania regulations that apply to regulated
aboveground and underground storage tanks.
Storage Tank Operator
The storage tank operator (“operator”) is the person who is responsible for the use and
maintenance of the storage tank system.
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Storage Tank Owner
The storage tank owner (“owner”) refers to the property owner for the property
containing regulated storage tanks. This can be the same person as the operator, but does not
have to be.
Pennsylvania Department of Environmental Protection (PA DEP)
The Pennsylvania Department of Environmental Protection (PA DEP) (“Department”) is
the regulatory agency responsible for the enforcement of the Pennsylvania storage tank
regulations.
Regulated Storage Tanks
Storage tanks which are subject to the regulations found in 25 Pa. Code Chapter 245.
The majority of these tanks are located at gas stations.
CHAPTER TWO
Literature Review
Storage Tank Regulation History
On August 5, 1989, the State of Pennsylvania enacted the Storage Tanks and Spill
Prevention Act, which established specific regulatory requirements for owners and operators of
underground and aboveground storage tanks. (Pennsylvania code) A large majority of the
facilities that have underground storage tanks covered by these regulations are gas stations.
Although the total number of active storage tanks in Pennsylvania has been reduced from 90,321
in 1991 to 24,162 in 2009, there have been 14,766 confirmed releases of regulated substances
from storage tanks since 1989. (US EPA, 2009) Pennsylvania currently has a backlog of 3,207
open releases that are still in the process of remediation. (US EPA, 2009) The impact of these
releases is mostly to groundwater. (Frye, 2008)
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Groundwater
A September 2008 LUSTline article states that groundwater is extremely important to
human survival, not just for drinking, but for many other integral parts of our economy including
energy and fuel production. However, groundwater has not gotten the attention and the respect
that it deserves from the public. (Frye, 2008) In addition, it is widely accepted that contaminated
groundwater sources are very difficult and expensive to replace. (Ground Water Protection
Council, 2007) The Groundwater Protection Council, among other reputable sources, believes
that underground storage tanks are a major contributor to groundwater contamination. The
Council also recognizes that, while the federal and state regulations have become more stringent
since the inception of the regulations, in order to protect groundwater resources, these
regulations must be strictly enforced. (Ground Water Protection Council, 2007) Don Carr,
spokesman for the Environmental Working Group stated in a recent USA Today article, “You
can't put a price on the availability of clean, fresh sources of drinking water.” (Schweers, 2009)
Impediments to Compliance
A number of issues are preventing 100% compliance with the Pennsylvania storage tank
regulations. A prime source of non-compliance is a disconnection between the regulations and
the operator of the storage tanks. Many times the root of this problem is due to the complexity of
regulatory writing. This problem can be magnified when, as often happens, the operator is
uneducated and/or foreign to the English language. In addition, many owners and operators are
ignorant of their respective obligations and they fail to take responsibility for their property. The
owner may assume that the requirements are solely for the operator, and the operator may
assume the owner is the only responsible party. Owners and operators also seem to be unaware
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of the consequences of failing to properly maintain their storage tank systems and non-
compliance with the regulations. This ties back into the issue of uneducated owners and
operators. They may not realize that a release from their storage tank could result in a sizeable
financial obligation, as well as negative impacts to nearby residents’ drinking water. (Dee, 2009)
An August 26, 2009, USA Today article focuses on the difficulties gas station owners are having
with keeping up with the environmental requirements for their storage tanks, both economically
and in dealing with the constant evolution of regulations. In the article, James Patneau Jr., owner
of four independent gas stations in Ohio, says, “The bottom line is there is a progression that the
rules never get easier, they only get tougher.” He says regarding the regulations, “It is tough
dealing with the federal and state government.” (Schweers, 2009) The issue of untrained storage
tank owners and operators has been acknowledged by both federal and state government
regulators all over the country. While it would be ideal if the government environmental
agencies could make sure that each facility fully understands all of its regulatory obligations
prior to operating their tanks, there is not nearly enough staffing in the agencies to complete this
task. Marcel Moreau, a noted expert in the field of storage tanks says, “Today’s storage systems
are...complex and sophisticated (for reasons that are economic as well as environmental), as are
the regulations governing them. Yet we still expect that people off the street will be able to
successfully operate these systems. Is it any wonder that they so often fail?” (Moreau, 2002)
Operator Training
The state government of Oregon responded to this issue by instituting an operator
training program in 2003. (England, 2008) Now that the program has been in place for a few
years, critics are saying that while the training has not been a silver bullet for compliance, the
operators are proving to be more knowledgeable, and compliance rates have gone up and
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continue to do so. (England, 2008) The Federal Energy Policy Act of 2005 requires all states to
begin an operator training program by August 8, 2009. (Hazardous Waste Consultant, 2006)
Pennsylvania has developed an operator training program that requires all storage tank facilities
to have DEP-certified class A, B, and C operators for their facility no later than August 8, 2012.
(Environmental Quality Board, 2009) The Class A operator assists the owner and operator in
maintenance and compliance. The Class A operator will typically be a DEP-certified tank
handling company hired by the owner. The Class B operator oversees day-to-day operations,
maintenance, and compliance. This person may be overseeing several facilities at the same time.
The Class C operator is the person who is at the facility daily. This is the person physically
performing the release detection, checking equipment, and responding to emergencies.
(Environmental Quality Board, 2009)
Summary
At least some, if not all, storage tank owners and operators may require additional
assistance with understanding the state storage tank regulations. The current lack of
understanding is resultant of several issues, including ignorance of the requirements and
consequences, language barriers, and lack of education. My guidance document is intended to
aid the Class B and C operators. It will serve as a reference document for operators who do not
have experience in operating underground storage tank systems. In addition, it will give new
operators a baseline from which to work. It will be especially useful for facilities that have a
high turnover rate for their Class C operators. These people will have a very difficult time
keeping up with the required operator training. This document will be a reliable source of easily
understood information for any operator. The success of this guidance document will protect
storage tank owner and operators from costly clean-ups and penalties as well as lighten the
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overwhelming workload of the understaffed PA DEP. Hopefully, attaining a higher rate of
compliance with the regulations will decrease the number of future releases from storage tanks
into the environment.
CHAPTER THREE
Research Design & Methodology
Proposed Evaluation Design
My capstone project is a plain-language guidance document for storage tank operators.
The document will be a manual for complying with the applicable Pennsylvania Department of
Environmental Protection (PA DEP) regulations. The document is written mainly for gas station
owners and operators. The following topic headings are included in the document: My Tank
System; Identifying Storage Tank System Components; Registration; Corrosion Protection; Tank
Release Detection; Piping Release Detection; Spill and Overfill Prevention; Facility Operations
Inspections; Operator Training Requirements; Releases; Other Applicable DEP Regulations (air
and waste); Testing Schedule Summary; Frequently Asked Questions; and Forms. I explained
the regulations while trying to keep the information brief and easy to read so that the document
does not become overwhelming for the reader. My goal is for this guidance document to be
published by PA DEP and handed out to the regulated community. It is of utmost importance
that this document is easy to use and understand. Otherwise, it will not achieve the intended
purpose.
Methods
I used the Pennsylvania storage tank regulations along with current guidance documents
both produced by the federal and several different state governments as resources to produce the
document. I had DEP-certified tank inspectors and state regulators to review my document and
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provide me with feedback regarding the information I chose to include and the clarity of my
interpretations. These opinions confirmed that the document is easily understood and that I have
not overlooked any important regulations. I have a validity concern with the completeness and
accuracy of my regulatory interpretations, due to the fact that I am trying to have it published by
a government agency. This will be addressed by the storage tank program managers in PA
DEP’s central office and the PA DEP policy office reviewing the document prior to publishing.
Quantitative Analysis
Time did not permit a pre-test/post-test to test my hypothesis.
CHAPTER FOUR
Results
Discussion
I expect that PA DEP will publish the document that I create. It will then be handed out
to storage tank owners and operators by PA DEP storage tank program staff in all regions of
Pennsylvania. I expect that owners and operators who use my guidance document will gain a
more complete understanding of their regulatory requirements. A better understanding of the
regulations will improve facility compliance with the regulations.
Conclusion
I wrote a plain-language guidance document which explains underground storage tank
systems and the Pennsylvania underground storage tank regulations. Research has shown that
lack of understanding of the regulations is a major impediment of compliance for storage tank
owners and operators. If PA DEP publishes my document, it will be an excellent tool for
government regulators to provide to storage tank owners and operators. It will also complement
the new operator-training program in Pennsylvania, which will be fully phased in by 2012. My
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guidance document explains the regulations in an easily understandable way and therefore
promotes facility compliance. The compliant facilities will also be less likely to experience an
incident where regulated substance is released into the environment including groundwater.
10
REFERENCES
(2006). EPA Takes Actions to Implement the Underground Storage Tank Compliance Act of
2005. Hazardous Waste Consultant, 24(6), 2.10-2.15. Retrieved from Business Source
Premier database.
Dee, B. (2009). Don't overlook the hidden costs of compliance. Convenience Store News, 45(5),
52.
England, T. J. (2008). Operator training: The Oregon experience. L.U.S.T.LINE, 58 (September
2008), 6-7.
Environmental Quality Board. (2009). PA bulletin, doc. no. 09-466. Retrieved 10/25/2009, 2009,
from http://www.pabulletin.com/secure/data/vol39/39-11/466.html
Frye, E. (2008). Will groundwater ever get some R-E-S-P-E-C-T? Why underground storage
tanks matter. Lowell, MA: New England Interstate Water Pollution Control Commission.
Ground Water Protection Council. (2007). Call to action. Retrieved 10/24/2009, 2009, from
http://www.gwpc.org/CallToAction/CallToAction.aspx
Moreau, M. (2002). Of SQUARE PEGS and round tanks OR...what if tank operators knew how
to operate tanks? L.U.S.T.LINE, 40 (March 2002), 23-25.
Pennsylvania code Retrieved 10/25/2009, 2009, from
http://www.pacode.com/secure/data/025/chapter245/chap245toc.html
Schweers, J. (2009). Gas stations running on fumes. USA Today, (August 26, 2009), 3a.
US EPA. (2009). UST and LUST program performance measures Office of Underground
Storage Tanks (OUST). Retrieved 10/24/2009, 2009, from
http://www.epa.gov/oust/cat/camarchv.htm
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