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Indiana Perspectives on the Use of Institutional Controls
for Leaking UST Sites
May 2014
ASTSWMO LUST and State Fund-Financial Responsibility Workshop
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Indiana Department of Environmental Management
Remediation Programs
Office of Air Quality Office of Water Quality Office of Land Quality
Remediation Science Services Permits Compliance
Federal Programs
Excess Liability Trust Fund (USTs)
Leaking UST
State Cleanup
Voluntary Remediation
Indiana Finance Authority Brownfields
Tanks
Hazardous Waste
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Risk-based Corrective Action (RBCA) • ~2000 – Transition began to broad risk program use • Site Characterization
– What contaminants? How much? Where? Mobility? • Conceptual Site Model and Risk Assessment
– Identify exposure pathways and receptors – Identify risk target levels based on land use – Does contamination pose unacceptable risk?
• Corrective Action (prior to 2009) – Reduce contaminant concentrations to land use based levels,
then – Eliminate exposure pathways to receptors with institutional
controls (ICs), typically an Environmental Restrictive Covenant (ERC)
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What is an ERC? • Proprietary IC that lists restrictions and obligations for a
specific property • Uniform Environmental Covenant Act not adopted by
Indiana • Indiana code defines ERC content and IDEM’s authority • ERCs “run with the land” – binding on successor owners
and enforceable by IDEM • Signed by property owner and recorded at County
Recorder’s office; becomes part of title record • Property owner responsible for compliance • Site closure after IDEM receives copy of recorded ERC
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ERC Contents • Describes property ERC covers
– Reference to deed record – Legal description attached
• Describes why ERC is in place – Lists remediation program and site number – May describe contamination remaining at
site • Common restrictions and
obligations for leaking UST sites: – No ground water use – Soil management obligations – No residential use – “Affected area” obligations, such as
caps and construction worker notice
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Risk-based Corrective Action • 2009 Indiana law changed risk remediation objectives
• Corrective Action (after 2009) – Treatment or removal of contaminants, including free product, not
necessarily required
– Remedies that manage risk and control exposure may be proposed in lieu of, or in addition to, reducing contamination to closure levels
– IDEM must “give effect to” ERCs and newly defined Environmental Restrictive Ordinances (EROs) in evaluating remediation proposals
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What is an ERO? • 2009 Indiana law defined an ERO as:
– Ordinance that controls the use of ground water to a degree that protects from exposure to hazardous substances and/or petroleum
– Requires local authorities to notify IDEM if they are enacting, amending, or terminating an ERO
• By definition, may include ordinances enacted previously for other purposes
• Size of ERO may vary from entire corporate limits to smaller areas
• Most Leaking UST sites close with ERCs – Limited ground water plume extent – Residual soil contamination
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EROs – Evaluation • General evaluation considerations:
– Area covered by proposed or existing ERO? – Extent of contaminant plume? – Any influence by nearby water withdrawals? – Potable well use in ordinance area? – Plume within a wellhead protection area (WHPA)?
• ERO Challenges – DNR water well database incomplete – No well-established communication process with local stakeholders – Complicating issues such as long-term plume stability, lack of
comprehensive state well permitting, and existing or planned WHPAs
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Example ERO
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Rise in IC Numbers Since Risk-based Corrective Action Initiated
0
50
100
150
200
250
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012
Number of ICs Per Year (All Remediation Programs)
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IC Sites in Registry by Program • Indiana Brownfields Program
– 258 ICs
• Voluntary Remediation – 247 ICs
• State Cleanup – 101 ICs
• Federal Programs – 63 ICs
• RCRA Corrective Action – 49 ICs
• Leaking UST – 651 ICs
Number of ICs
BF LUST RCRA SCU SF VRP
1,356 ICs
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Indiana UST Sites
Increased use of ICs after 2009 law changes
• ~10% of all closed Leaking UST sites used an IC
• ~ Current IC use about 45%
~2,000 active Leaking UST sites
~4,230 active UST facilities
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Shift in How ICs Viewed • 2001-2007 growing number of IC sites
– No cross program tracking of ICs – Records stored in different agency program files
• 2007-2008 mounting concerns about IC awareness – Environmental agency typically not involved with local
redevelopment projects – Local government units (planning, zoning, building permits, etc.)
may be unaware of contaminated sites – Administrative records may be lost (property subdivided, etc.)
– New owners/tenants may be unaware of ERCs • 2008 IC Registry developed and electronic record storage
began
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Comprehensive IC Program
IC Policy and Implementation IC Enforcement IC Outreach and
Notice Tracking ICs Monitoring ICs
IC Long-term Stewardship
Planning
A robust IC program should cover all these functional areas
•Requires a broad range of staff expertise from multiple areas – managerial, technical support, project management, and legal •IDEM currently spends majority of time on IC implementation and tracking •Indiana has no dedicated funding for majority of IC activities
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IC Policy and Implementation • Most time-consuming • Individual site IC review and implementation • Agency guidance • Internal Standard Operating Procedures
IC Policy and
Implementa -tion
IC Enforcement
IC Outreach
and Notice
Tracking ICs
Monitoring ICs
IC Long-term Stewardship
Planning
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IC Policy and Implementation • Lessons learned
– Selection and documentation of restrictions important
– Some sites over-restricted • Tendency to be overly conservative • Leads to problems down the road with requests for
modifications
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Over-restriction Examples • Example 1- Vapor intrusion (VI) restriction
– Vapor mitigation system required for all on-site buildings – Contaminant levels below ground water VI screening levels – No vapor intrusion testing or assessment done – No documented technical staff concurrence
• Example 2 – Maintain the pavement – Subsurface soil only affected media – Minor levels (leaching to ground water not a concern) – No nearby water wells (private or community) – Contamination at 12 feet (not easily accessible, no direct contact
concern)
• Example 3 – Size of restricted area
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Over-restriction – 125 acres
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IC Policy and Implementation • Lessons learned (continued)
– Contract sales sites – both buyer and seller should sign ERC
– If restrictions only cover a portion of the site, clear geospatial data must be provided
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Restriction Language – “Owner shall not conduct excavation in Affected Area, as shown in Exhibit B, without IDEM approval.”
Exhibit B is a ground water sampling map from an investigation report. No “Affected Area” denoted.
Long-term stewardship problem?
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IC Outreach and Notice • Better communication lines with local
government units needed • IC Registry on IDEM website • IndianaMap IC layer created • Staff training • External stakeholder training
IC Policy and
Implementa- tion
IC Enforcement
IC Outreach and Notice
Tracking ICs
Monitoring ICs
IC Long-term Stewardship
Planning
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Tracking ICs • IC retention schedule created 2009 • Locate IC records in different remediation
programs • IC Registry Development
IC Policy and
Implementa- tion
IC Enforcement
IC Outreach and Notice
Tracking ICs
Monitoring ICs
IC Long-term Stewardship
Planning
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ERC and ERO Information Tools
• IDEM Institutional Controls Registry – Database of sites with land use controls – www.idem.IN.gov/5959.htm
• IndianaMap – Statewide map viewer to show geographic location of sites – http://www.indianamap.org/
• Virtual File Cabinet (VFC) – Online access to IDEM site records – www.idem.IN.gov/6551.htm
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Institutional Controls Registry • Rolled out December 2008 • Identifies sites subject to land use restrictions
• Contains links to ERCs • Long-term plan to include EROs • Links to IndianaMap (zoomed to site) and Virtual File
Cabinet • Summary report at www.idem.IN.gov/5959.htm
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County
Site Name Address & City
IC Summary Report Contents
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Restriction or Engineering Control
Affected Media
Contaminant Class
Comments
IC Summary Report Contents
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Click ‘View’ to open document in VFC
IC Summary Report Contents
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Virtual File Cabinet • IDEM’s online portal to documents and records • Available 24 hours a day • Over 60,000,000 pages loaded • Searchable indexing, including, but not limited to:
– Primary facility name – Facility address – County, city – Program identification number
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Specific Restriction Language (no drinking water wells, etc).
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Click ‘Map’ to open aerial photo in IndianaMap
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Click and then map icon to open site-specific information.
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Use the ID# to search for records in VFC at IDEM website.
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Tracking ICs – GIS Mapping • ERC legal descriptions used to create GIS
polygons – IC Registry started with single point designation for IC
sites – Changed procedure so polygons created in ERC draft
phase to verify accuracy and reduce high error rates – ~460 polygons finalized to date – GIS polygons for old
sites created as resources permit IC Policy
and Implementa-
tion
IC Enforcement
IC Outreach and Notice
Tracking ICs
Monitoring ICs
IC Long-term Stewardship
Planning
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Tracking ICs – GIS Polygons for Mapping
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Proposed and Final ERC Land Use Restriction Areas in Indianapolis
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Tracking ICs – Legal Descriptions • Lessons Learned
– ~10% of legal descriptions submitted have errors – Typographical errors in legal description – Legal description does not cover contamination – Legal description extends to off-site parcels or
unnecessarily large acreage (over-restriction) – ERC recorded by nonowner of land
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Typographical errors in legal description
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Legal description does not cover contaminated area
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Legal description does not cover contaminated area – incorrect parcel
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Incorrect legal description AND property owner
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Monitoring ICs • IDEM currently has no comprehensive IC
monitoring program (no dedicated funding)
• ~270 sites have had “partial” audits – 65 sites by UST and hazardous waste inspectors – ~135 sites by summer interns
• ~5-10% in violation or require additional follow up
IC Policy and
Implementa- tion
IC Enforcement
IC Outreach and Notice
Tracking ICs
Monitoring ICs
IC Long-term Stewardship
Planning
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Audit Findings • Common issues
– Engineered barrier integrity problems
– Lack of notice to IDEM as required • Other violations
– Residential use on nonresidential properties
– Water well use • Many sites redeveloped – may
or may not have had violation in soil handling
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Indiana One-call System Feasibility Study • 2012 summer intern project • Can Indiana’s 811 system be used for IC monitoring? • Challenges
– Mapping differences – Obtaining membership – Lack of exact contamination locations (depth of contamination,
etc.) – Costs and staff resources
• Benefits – Increased awareness to external stakeholders – May be able to tailor sites based on restriction type
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IC Cost Challenges
• No dedicated funding for most IC activities, particularly after site closure • Minimal auditing planned • Audit site selection based on known problem areas
• Long-term stewardship needs will require agency resources • Increased report review needs • ERO communications
• IDEM staff coding elements for IC work created in 2013 to track agency costs
• Legislature passed cost recovery for ERC modification requests
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ERC Modification Challenges
• Large impact on staff resources – Original project manager may have left – Competes with active site caseload – Redevelopment projects often require quick turnaround – Complexity varies by site, and if risk reassessment needed
• Confusion about what restrictions should remain in effect – Some older site closure records don’t indicate specific land use
restrictions – Past tendency to over-restrict sites
• Numerous instances of multiple ERCs recorded on properties without correctly terminating prior instrument
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Types of ERC Modification Requests • Property originally subject to ERC is subdivided
– Involving areas with residual contamination, or – Involving areas outside investigative studies
• Proposed land use change • Correction of a significant omission or legal
description error • Demonstration that contamination no longer
represents a risk (additional remediation or attenuation)
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Planned IC Activities for 2014 • IC planning, implementation, and tracking
continues (majority of effort) • ERC modification policy development • Long-term stewardship issues
• Create model long-term stewardship plan and guidance • Funding challenges • Follow national LTS work (IC surveys, Interstate Technology
Regulatory Council workgroup, etc.)
• Engineered cap policy development • Audit ~15 sites; focus on engineered cap sites • Follow up on audits and ongoing complaints
received
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IC Data Exchange • XML data schema establishes rules so IC
documents are described in the same structure • Standard means for sharing IC information
between computer systems • Published 2013 on the Environmental
Information Exchange Network – www.exchangenetwork.net/data-exchange/ic
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IDEM Contact Information
Nancy Dollar, Remediation Services Branch (317) 234-4814