University of Pennsylvania University of Pennsylvania

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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

Follow this and additional works at: https://repository.upenn.edu/mes_capstones

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 repository@pobox.upenn.edu.

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

ii

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

iv

Discussion............................................................................................................................... 8

Conclusion............................................................................................................................... 9

REFERENCES .........................................................................................................................10

1

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.

2

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.

3

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)

4

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

5

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

6

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

7

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

8

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

9

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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