non-participating landowners, informational devices & use of … · 2017-05-30 · site example...
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Non-Participating Landowners, Informational Devices & Use of
Recorded Notices
Anthony Austin, OSRE Craig Boehr, OSRE
U.S. Environmental Protection Agency
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Overview
• New strategy memo about implementing ICs at sites with uncooperative landowners
• Informational devices • Proper and effective use of notices at cleanup
sites • New model notice of contamination
U.S. Environmental Protection Agency
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Non-Participating Landowner Strategy Memo
• Purpose: provide EPA enforcement staff with strategies, practices, and tools when encountering a landowner who is reluctant, unwilling, or refuses to cooperate or implement PCs (i.e., a non-participating landowner).
• http://intranet.epa.gov/oeca/osre/doc/nonpart-landowner-mod-notice-contam-2016-mem.pdf
U.S. Environmental Protection Agency
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Non-Participating Landowner
• Used in the legislative notes of UECA. • Parties who are unwilling to enter into a PC. • Under UECA, it’s also used to refer to
landowners who are unavailable.
U.S. Environmental Protection Agency
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Proprietary Controls
• Agreements between the property owner and a second party, where the owner agrees to refrain from certain actions and/or to perform certain actions designed to protect the response action or human health and the environment.
• E.g., conservation easements, restrictive covenants, environmental covenants.
U.S. Environmental Protection Agency
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Phase One: Early Identification of and Engagement with Landowners
• Early identification and engagement of landowners
• Communication strategies to encourage landowners to implement PCs
U.S. Environmental Protection Agency
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Phase Two: Enforcement Options and Alternatives to Enforceable PCs
• PRP-landowner (i.e., a party who may be liable under CERCLA and from whom performance of the cleanup is expected)
• Non-source landowner (i.e., party whom EPA may not treat as liable under CERCLA based on liability protections or enforcement discretion policies)
U.S. Environmental Protection Agency
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Enforcement Options for PRPs
• 1) Enforcement under a negotiated agreement.
• 2) Issue a UAO.
U.S. Environmental Protection Agency
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Authority
• CERCLA §104(a)(1): authority to take any response measure consistent with NCP necessary to protect public health, welfare, or environment.
• NCP §300.430(a)(1)(iii)(D) specifically contemplates the use of ICs, in particular “deed restrictions.”
• CERCLA §106(a).
U.S. Environmental Protection Agency
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Site Example – Blackbird Mine Site
• “Respondents shall implement the institutional controls set forth in the ROD and the SOW to ensure the long-term protection of human health and environment. This includes providing long-term, permanent, enforceable easements or comparable instruments that run with the land and are binding upon future landowners.”
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State Statutory Mechanisms
• UECA Sec. 4(a)(5) (contents of the EC) – requires signature of every owner the real property subject to the EC, unless waived by the Agency.
• Other state statutes, like Michigan’s (MCLS §324.20121), that may allow the PC to be implemented by judicial order.
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5th Amendment Takings?
• “Nor shall private property be taken for public use without just compensation.”
• Three-part balancing test: (1) character of the regulatory action; (2) economic impact of the action; and (3) extent to which the action interferes with reasonable investment-backed expectations.
U.S. Environmental Protection Agency
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Options for Non-Source Landowners
• The options are arguably different for non-source landowners (e.g., bona fide prospective purchaser, contiguous property owners, innocent landowners).
• Comply with land use restrictions and do not impede effectiveness or integrity of ICs.
U.S. Environmental Protection Agency
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Informational Devices
• State registries of contaminated sites and ICs
• Posted advisories
• Recorded Notices
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State Registries Wisconsin DNR: CLEAN
U.S. Environmental Protection Agency
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Wisconsin DNR’s CLEAN, continued
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State Registries, continued…
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State Registries, continued…
U.S. Environmental Protection Agency
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Wisconsin DNR’s CLEAN, continued
U.S. Environmental Protection Agency
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Wisconsin DNR’s CLEAN, continued
U.S. Environmental Protection Agency
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Posted Advisories
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Posted Advisories, continued
https://www.epa.gov/fish-tech
U.S. Environmental Protection Agency
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EPA’s National Listing of Fish Advisories
https://fishadvisoryonline.epa.gov/General.aspx
U.S. Environmental Protection Agency
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EPA’s National Listing of Fish Advisories
U.S. Environmental Protection Agency
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Use of Recorded Notices • Informational notices when PC implementation
cannot be achieved • Used as a last resort when a PC may not be
implemented, or as a supplement to other ICs • Recorded in real property land records • Not legally binding; no use restrictions imposed • Engage landowner in drafting • Protectiveness and absence of a PC should be
monitored and periodically evaluated (FYRs, ICIAPs)
U.S. Environmental Protection Agency
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Use of Recorded Notices
• DISCLAIMER: The remedy selection process and remedy amendment process must still be followed if different ICs are needed than those originally selected.
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UAO & Recorded Notice
• Eureka Mills Superfund Site – Utah – Region 8 issued UAO to comply with land use
restrictions. – UAO prohibits digging or developing in specific
areas on an affected parcel. – Also filed a notice of environmental conditions on
the affected parcel.
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Types of Recorded Notices • Notice of Contamination (Deed Notice)
– Description of contamination, location of contamination, land or resource use recommendations, legal description, cautionary language on safety measures, etc.
– Should NOT include words of prohibition or suggest notice is enforceable or imposes restrictions, is binding
– Provide property owner opportunity to negotiate
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Greenwood Chemical – Region 3
U.S. Environmental Protection Agency
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Model Notice of Contamination
• Internal document, to assist Regions with drafting notices of contamination – Database of filed notices will also be kept
• Notes that Notice does not create any interest in real estate or restrict property use
• Allows for listing of activities identified in ROD that increase risk of exposure to contamination
• Provides location of Administrative Record and EPA contact information
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Types of Recorded Notices
• Notice of Administrative Action – Following issuance of UAO – Same information as Notice of Contamination, but
also contains description of basis for issuing UAO, describes land or resource use restrictions in UAO
– Not enforceable but may inform potential purchaser or lender of expectations upon property acquisition
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Best Practices for Recorded Notices • Provide notice of intent to file and copy of
proposed notice • Provide opportunity to confer • Must clearly state that notice does not impose
enforceable use restrictions • Notices include only suggested safety measures,
recommended land or resource uses, and factual information about residual contamination
U.S. Environmental Protection Agency
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Obtaining SWRAU – IC Challenges
• OSRTI Audit – Universe of CC sites not yet SWRAU – IC issues found to be prominent barrier – 34% of sites where IC challenges are the only barrier
• Tools to address regional SWRAU issues – Regional Best Management Practices – SWRAU Decision Tree
• Next Steps – Continue audit, incorporate feedback
U.S. Environmental Protection Agency
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Questions?
• Anthony Austin, [email protected], (202) 564-6943
• Craig Boehr, [email protected], (202) 564-5162