EPA  510-R-00-002
Project Contacts

Richard Mattick,
  USEPA/OUST
  703/603-7154
  Mattick.Richard@epa.gov

John Connor, GSI
  713/522-6300    ' '
  jaconnor@gsi-net.com

Scott Murphy, ASTM
  610/832-9685
  smurphy@astra.org

State and Regional Contacts

Gilberto Alvarez, USEPA Region 5
  Chicago, Illinois

David Ariail, USEPA Region 4
  Atlanta, Georgia

ChetClarke,TNR.CC
  Austin, Texas

Douglas Clay, Illinois EPA
  Springfield, Illinois

Lynn Dail, USEPA Region 6
  Dallas, Texas

Alan Hancock, USEPA Region 7
  Kansas City, Kansas

James Humeston, Iowa DNR
  Des Moines, Iowa

Ruth Strauss, NC DENR
  Raleigh, North Carolina

Jo Taylor, USEPA Region 8
  Denver, Colorado

PaulZahn, Utah DEQ
  Salt Lake City, Utah
    fcPROV^
Risk-Based  Decision Making

Performance Assessment Study

Bulletin #2

Study Results and Recommendations for
RBDM Program Performance Monitoring

Practical measures have been developed for evaluating the impact of Risk-
Based Decision Making (RBDM) on state underground storage tank corrective
action programs.  These measures have been used to evaluate the effect of
RBDM on the corrective action programs of five pilot states. In a majority of the
pilot states, implementation of an RBDM program resulted in an increase in case
closures and a decrease or stabilization in case backlog. Additional findings
indicate that these RBDM programs successfully targeted low-risk sites for
closure while retaining higher-risk sites for further action. Minor modifications to
state program databases will allow for a more detailed evaluation of program
performance measures.
This document has been funded
wholly by USEPA under assistance
agreement X825708-01. The infor-
mation may not necessarily reflect the
view of the Agency, and no official
endorsement should be inferred.
Introduction

The Risk-Based Decision Making
(RBDM) Performance Assessment
Study has been conducted as a
research effort designed to assist
state and territorial environmental
regulatory agencies with the
evaluation of their individual
RBDM programs for Under-
ground Storage Tanks (USTs).
The specific goals of this study
were to: i) develop practical,
quantitative measures for evalu-
ating the impact of RBDM on
achieving state agency manage-
ment goals, ii) apply these meas-
ures to five state RBDM programs
to evaluate program performance,
and iii) provide general guidelines
for other state and territorial envi-
ronmental agencies interested in
tracking the performance of their
RBDM programs.

This Bulletin reviews the proce-
dures and results of this RBDM
Performance Study and presents
guidelines for monitoring and
evaluating the effectiveness of
RBDM programs. In addition,
self-reported evaluations of two
other state programs are included.
The study was funded by the
United States Environmental
Protection Agency (USEPA) Office
of Underground Storage Tanks
(OUST) under Assistance Agree-
ment #X825708-01 to the Ameri-
can Society for Testing and Mate-
rials  (ASTM). Groundwater
Services, Inc. (GSI), of Houston,
Texas, has conducted the study.
The results have been reviewed
by the participating states, USEPA
regions, USEPA OUST, and by
Partnership in RBCA Implemen-
tation (PIRI).

Risk-Based Decision Making

The USEPA Office of Solid Waste
and Emergency Response
(OSWER) Directive 9610.17 en-
courages all state UST programs
to apply RBDM to the corrective
action process at petroleum re-
lease sites. RBDM is a flexible de-
cision management framework
that is customized to fit the needs
of individual agency programs.
When applied to the UST correc-
tive action process, RBDM may
also be referred to as Risk-Based
Corrective Action or "RBCA".
The ASTM RBCA Standard E-
1739-95 is one example of an
RBDM framework that has been
used by states to design or
 March 2000
                            RBDM Performance Assessment Bulletin #2
                                                        Page 1 of 11

-------
   ILLINOIS ENVIRONMENTAL
     PflOTECTlON AGENCY
     IOWA DEPARMENT
   OF NATURAL RESOURCES
   NCDENR
   TEXAS NATURAL RESOURCE
   CONSERVATION COMtSSlON
 augment their corrective
 action programs. An
 RBDM program typically
 includes three principal
 activities:

 • Risk-Based Site Prioritization: Pri-
  oritize sites based on the timing
  or magnitude of potential im-
  pacts to human health and the
  environment.

 • Site-Specific, Risk-Based Remedia-
  tion Goals: Determine risk-based
  concentration limits for affected
  environmental media designed
  to prevent impacts on human
  health and the environment.
  Tier 1 remediation goals repre-
  sent generic concentration limits,
  based on conservative default
  assumptions. Tier 2 and Tier 3
  provide site-specific media
  cleanup limits based on addi-
  tional site data and more sophis-
  ticated data analysis.

 • Remedy Selection: Select remedia-
  tion alternatives, such as re-
  moval or exposure control, to
  address site-specific risk drivers.

 RBDM is a science-based process
 that offers a clearly defined and
 consistent basis for  site evaluation
 and remediation. As a result, im-
 plementation of RBDM corrective
 action programs is expected  to
 result in increased program effi-
 ciency and improved risk  reduc-
 tion.

 RBDM Performance
 Assessment Study Background

 Five state environmental regula-
 tory agencies have participated in
 this preliminary study to evaluate
 the effectiveness of their RBDM
 programs:

 • Illinois: Illinois Environmental
  Protection Agency, Leaking Un-
  derground Storage Tank Section
 • Iowa: Iowa Department of
  Natural Resources, Under-
  ground Storage Tank Section
 • North Carolina: North Carolina
  Department of Environment
  and Natural Resources,
  Groundwater Section
 • Texas: Texas Natural Resource
  Conservation Commission,
  Remediation Division
 • Utah: Utah Department of Envi-
  ronmental Quality, Division of
  Environmental Response and
  Remediation  .

 Each of the selected pilot states
 has implemented a state RBDM
 program and expressed interest in
 evaluating their program per-
 formance. To provide geographi-
 cal balance, no more then one
 state per USEPA Region was se-
 lected for this study.  In addition
 to the five pilot states, this bulletin
 summarizes the program per-
 formance of two states, Michigan
 and Alabama, which have evalu-
 ated the impact of their RBDM
 programs independent of this
 study.

 For this study, the pilot states
 provided input on their individ-
 ual program goals, the perform-
 ance measures currently utilized
 in their state, and the utility and
 feasibility of the RBDM perform-
 ance criteria developed for this
 study. In addition, each pilot state
provided program performance
 data in the form of program data-
bases, and assisted with internal
program evaluations and inter-
pretations of study results.

 RBDM Program Goal and
 Performance Measures

The overall goal of state UST pro-
grams is to protect human health
and the environment from re-
leases associated with leaking un-
derground storage tank (LUST)
sites. In order to achieve this goal,
March 2000
RBDM Performance Assessment Bulletin #2
                                                                                     Page 2 of 11

-------
                                the RBDM programs imple-
                                mented by the pilot states ad-
                                dressed in this study shared the
                                following objectives:

                                • Risk Reduction: Reduce the
                                  human health and ecological
                                  risks associated with LUST sites.

                                • Expedited Site Evaluation,
                                  Remediation, and Closure:
                                  Streamline the site assessment
                                  process to close sites which do
                                  not pose an unacceptable risk to
                                  human health or the environ-
                            ment and expedite the remedia-
                            tion of sites with unacceptable
                            risks.
                            Cost Control/Resource Allocation:
                            Reduce the cost of site remedia-
                            tion and closure without com-
                            promising protection of human-
                            health and the environment. Fo-
                            cus available resources on high-
                            risk sites. Reduce the adminis-
                            trative cost of program man-
                            agement.
                                     TABLE 1:  LIST OF SUGGESTED PERFORMANCE MEASURES FOR
                                                 EVALUATION OF LUST RBDM PROGRAMS
                                  PROGRAM
                                  GOAL
                                  Risk
                                  Reduction
                                  Expedited
                                  Evaluation,
                                  Remediation,
                                  Closure
                                  Cost
                                  Control/
                                  Resource
                                  Allocation
PERFORMANCE
  MEASURE
Composite Site
Classification
Profile
(see Figure 3)

?/-V Sf   £»/ ig3***~ *
Compojife
CorfeflfuentKS-
&T 4.**" Ji -?1"?™
                                              Cleanup
                                              Completed
     alog
                                              No Action Sites
                                              Time to Action
                                              Plan Approval

                                               Remediation
                                               Cost
                                                             TRACKING DESCRIPTION
                Distribution of risk-based
                site classification ratings or
                sum of site classification
                scores through time
                Number of corrective ac-
                tions resulting in case clo-
                sure
urfirieijpf sites currently*"
anaeed by Ihe state   j
   ~ *~ •*.•** ^0.   sfeSf A-0* -^
     ^     *" "  •
                Percentage and overall
                number of sites not
                requiring corrective action
                following risk-based site


                            pjreiall^ ^f
                                                              evaluation
                                                              Percente
                                                              Subs? 0
                Time from incident report-
                ing to state approval of a
                corrective action plan
                                                              Deporting w"Hje_c|pstire
                                                               e
                Total expense from incident
                reporting to case closure for
                the responsible party or for
                the state reimbursement
                fund
                                         SITE DATA REQUIRED
                      Initial site classification,
                      Current site classification,
                      Site score (i.e., high score
                      for high risk)
                                        Ooiuredate
                                        L -

                                        Closure date,
                                        Basis for closure
                                        •notice,^   t-  '      j
                                           ipnT?lan approval Sate
                       Incident reporting date,
                       Action Plan approval date


                       I^cidera repoffirtgfdatej"
                       Site remediation cost
                       (including assessment and
                       closure costs),
                       Remediation cost
                       reimbursed by state fund
March 2000
                                 RBDM Performance Assessment Bulletin #2
                                                    Page 3 of 11

-------
                             To assist states in evaluating the
                             benefits of their RBDM programs,
                             this study has identified quantita-
                             tive performance measures that
                             correspond to each of the three
                             common RBDM program goals
                             (see Table 1). By tracking these
                             parameters over time for their
                             LUST site population, states can
                             measure progress with regard to
                             risk reduction, expedited site
                             evaluation, remediation, closure,
                             and cost control.

                             The suggested performance
                             measures should be viewed as a
                             menu of options, from which each
                             regulatory authority can select the
                             most appropriate measures for
                             their specific program.  These per-
                             formance measures are described
                             in more detail in the prior Per-
                             formance Assessment Study Bul-
                             letin #1 issued in March 1999
                             (ASTM, 1999).  To determine the
                             impact of RBDM implementation
                             on program performance, these
                             measures have been used to
                             evaluate program performance
                             based on data available from each
                             of the pilot states.

                             Evaluation of Pilot State
                             Programs:  Findings and
                             Implications

                             The five pilot states each maintain
                             a database of all active and closed
                             LUST sites which have been en-
                             tered into the regulatory process
                             for site remediation. GSI reviewed
                             each database to identify pa-
                             rameters which could be used to
                             evaluate progress toward RBDM
                             program goals. The pilot states
                             implemented RBDM for their cor-
                             rective action programs between
                             1994 and 1998 (see Table 2). In
                             order to compare program per-
                             formance before and after RBDM
                             implementation, performance has
                             been evaluated for the period of
                             1990 to 1999.
 The results of this study support
 the following general findings
 with regard to the common pro-
 gram management goals:

 • Expedited Site Evaluation,
  Remediation, and Closure: Im-
  mediately following imple-
  mentation, of their RBDM pro-
  gram, 4 of the 5 pilot states ob-
  served a dramatic spike in case
  closures per year and a stabili-
  zation or decrease in case back-
  log. In general, the average case
  age at time  of closure increased
  following RBDM implementa-
  tion. Combined with the in-
  crease in case closures, this
  finding indicates that many
  older cases  which have been in
  the regulatory process for many
  years are now being addressed.
  The observed reduction in case
  backlog is likely to reduce the
  administrative burden for the
  regulatory agency, allowing a
  more efficient allocation of
  available resources.

  In the first year of the Utah
  RBCA Tier 1 program (1995), the
  number of case closures in-
  creased by 120%, indicating that
  a Tier 1 process of generic
  screening criteria can signifi-
  cantly impact program per-
  formance (see Figure 1). Fol-
  lowing implementation of a
  RBDM-based corrective action
  program in  Iowa, 77% of RBCA
  Tier 1 site assessment
  reports approved by the DNR
  resulted in case closure and 28%
  of Tier 2 site assessments re-
  sulted in case closure, indicating
  that the RBDM process has been
  effective at identifying sites for
  closure or remediation. Key re-
  sults for individual pilot states
  are summarized in Table 2.
• Risk Reduction: Available in-
  formation regarding risk-based
  site classification (Texas and
 North Carolina) indicates that
 most of the LUST site cases
March 2000
                            RBDM Performance Assessment Bulletin #2
                     Page 4 of 11

-------
                                      800
                                                   Utah LUST Case Closures Per Year
                                          1990   1991   1992   1993   1994   1995   1996   1997   1998*
                                                                 Year
                              '* = 1998 data is through 10/1/98.

                               FIGURE 1:  EFFECT OF RBDM ON LUST CASE CLOSURES IN UTAH
                                   8000,
                                                    Texas LUST Case Backlog
7000.


6000.


5000,


4000.


3000.


2000.


1000.
                                        o High-Risk Sites
                                        • Low-Risk Sites
                                                         ,RBCA,
                                                                                   Exit Criteria -
                                        1990    1991    1992    1993    1994 .   1995    1996    1997    19:
                                                                 Year


                                                North Carolina LUST Case Backlog
                                        1990   1991   1992    1993    1994   1995    1996    1997   199B   1999
                              FIGURE 2:   EFFECT OF RBDM ON LUST CASE BACKLOG
                                          IN TEXAS AND NORTH CAROLINA
March 2000
                              RBDM Performance Assessment Bulletin #2
                                                                                              Page 5 of 11

-------
                                                                                            '	!| |,.,!"'||||f ,'' .fl1!1 " ., •" , l,"l"'1i I'll!
                            closed by these state RBDM
                            programs are low-risk sites (see
                            Figure 2). These examples dem-
                            onstrate that RBDM programs
                            are effectively meeting the state
                            program objective of closing
                            low-risk cases while retaining
                            higher-risk cases in the regula-
                            tory process for further evalua-
                            tion or remediation. The re-
                            duced backlog of low-risk sites
                            should allow available resources
                            to be more effectively targeted
                            to the higher-risk sites.
                           • Cost Control/Resource Alloca-
                            tion: Cost data in the LUST site
                            databases provided by the pilot
                            states were not sufficient to
                            measure the cost impacts of
                            RBDM at this time. However,
                            the significant reductions in case
                            backlog reported by some states
                            clearly corresponds to reduced
                            program costs.
                            An internal cost survey was
                            conducted by the Texas Natural
                            Resource Conservation Com-
                            mission to determine the impact
                            of RBCA implementation on the
                            cost of site remediation. Be-
                            tween 1994 and 1998, remedia-
                            tion/closure costs were reduced
                            by 70% for soil-only sites (me-
                            dian cost reduced to
                            $24,000/site from $80,000/site),
                            and by 58% for low-risk
                            groundwater impact sites (me-
                            dian cost reduced  to $107,000
                            from$250,000/site).

                           Potential Confounding Factors

                           Interpretation of the impact of
                           RBDM on program performance
                           may be complicated by con-
                           founding factors such as the 1998
                           upgrade deadline, changes in
                           staffing at state regulatory agen-
                           cies, or changes in state funding of
                           site remediation.  These factors
                           can also impact the program
                           measures designed to measure the
                                  effectiveness of RBDM. To control
                                  for these confounding factors, the
                                  impact of the RBDM on program
                                  performance independent of con-
                                  founding factors is best under-
                                  stood through the evaluation of
                                  multiple performance measures
                                  which cover all of the RBDM pro-
                                  gram objectives.

                                  Results from Other States

                                  In addition to the five states
                                  evaluated for this study, Michigan
                                  and Alabama have independently
                                  evaluated the performance of
                                  their LUST management pro-
                                  grams following the implementa-
                                  tion of RBDM. Alabama Depart-
                                  ment of Environmental Manage-
                                  ment (DEM), UST Corrective Ac-
                                  tion Unit implemented an RBDM
                                  program in April 1998 and is cur-
                                  rently tracking performance. In
                                  the first year of the program, Ala-
                                  bama DEM saw a reduction of 106
                                  active cases classified as low-risk
                                  sites and a corresponding increase
                                  of 115 closed cases (4% of the ac-
                                  tive'case population). Although
                                  recently implemented, the Ala-
                                  bama RBDM program appears to
                                  be successful in closing low-risk
                                  sites (Malaier, 2000).

                                  Michigan Department of Envi-
                                  ronmental Quality (DEQ), Storage
                                  Tank Division implemented  an
                                  RBDM program in April 1995. In
                                  1996, Michigan DEQ reported a
                                  61% increase in LUST case clo-
                                  sures compared to the average
                                  case closure rate for 1990 to 1995.
                                  In addition, Michigan DEQ
                                  achieved a 30% decrease in case
                                  backlog from 1995 to 1998. Im-
                                  plementation of the RBDM pro-
                                  gram resulted in a 24% average
                                  reduction in remediation/closure
                                  costs for UST sites, representing a
                                  $39,000 cost savings per site
                                  (Michigan DEQ, 1996).
March 2000
RBDM Performance Assessment Bulletin #2
                                                                                  Page 6 of 11

-------
TABLE 2. RESULTS FOR PILOT STATE RBDM PROGRAM
PERFORMANCE EVALUATION
A »f ~- '
*STATB/AGENCX>
'< f % "jf/fl
Texas Natural
Resource ^
Conservation* *£,
Commission, ?
Remediation
\crier; > 5
Department of
Environmental)
Duality, Division '
of Environmental
Response ^nd
Remediation'' / '
1 "V **
North Carolina
'Department of!
Environment
Resources, >'
•* Gg*ttj»djwaier Sec-
Jtoa. ,
• Ibfaa "L ; x
Department
Resources;''"'''*''*/ *
Underground "^ -«
-Storage Tank ^
*Sechon '- . ,. ,
Illinois
Hlrrfois*
p ferff ^X^
'leaking-^
^Storage Tank. ^ ^
^Section - '
RBDM
PROGRAM
IMPLEMEN-
TATION
Risk-Based
Corrective Action
for Leaking Stor-
age Tank Sites,
January 1994.
Exit Criteria,
September 1997.
Risk-Based
Corrective Action
Tier 1, September
1995.
Risk-Based
Corrective
Action
Tier 2, June 1998.

Risk-Based
Corrective Action
for UST sites,
January 1998.


Risk-Based
Corrective
Action, January
1997.



Tiered Approach
to Corrective
Action Objectives,
January 1997.




DATABASE
Responsible
Party
Remediation
Database

Leaking :
Under-
ground
Storage Tank
Database


Incident
Management
Database



UST/LUST
Database




Leaking •
Under-
ground
Storage Tank
Database


PERFORMANCE MEASURES
LUST SITE
REMEDIATION/
CLOSURE
• 46% increase
in case closures
1996 to 1997.
• 31% decrease
in case backlog
1994 to 1998.

• 120% increase
in case closures
1994 to 1995.
• 53% decrease
in case backlog
1994 to 1998.


• 46% increase
in case closures
1997 to 1998.
• 1% decrease
in case backlog
1997 to 1999.

• 134% increase
in case closures
'94-'96to'97-'99.
• 14% decrease in
case backlog
1996 to 1999.

• 8% decrease in
case closures
1996 to 1997.
• 8% increase in
case backlog
1996 to 1998.

RISK
REDUCTION
Preferential
closure of low-
risk cases,
remediation of
higher-risk
cases.

ID


Preferential
closure of low-
risk Cases,
remediation of
higher-risk


ID




ID





COST CONTROL
58 to 70%
decrease in
remediation
cost for
low-risk soil
or groundwater
sites.
ID


ID



ID




ID




                            NOTE: ID = Insufficient Data
                           General Recommendations for
                           RBDM Performance Monitoring

                           Evaluation of the pilot state data-
                           bases shows that most states track
                           data to provide important infor-
                           mation on the performance of
                           their regulatory program with re-
                           gard to key management objec-
                           tives. However, additional data
                           that would allow for a more com-
plete assessment of program per-
formance was often available in
individual site reports but was not
recorded electronically. In many
cases, minor modifications of da-
tabase parameters may be re-
quired to incorporate the quanti-
tative performance measures
identified in this study (see Table
1). Customizing a state program
for the purpose of an RBDM
March 2000
                            RBDM Performance Assessment Bulletin #2
                                                                                   Page 7 of 11

-------
                              Yean
                                                     Year 2
                                                                             Years
                               High 	\—->. Low
                                   Risk Category
                           High 	f- Low
                               Risk Category
High 	f- Low
   RiskCatagory
                            FIGURE 3: USE OF SITE CLASSIFICATION PROFILE TO TRACK RISK REDUCTION
                           performance assessment involves
                           the following steps: i) using the
                           list provided in Table 1 as a guide,
                           select or create relevant perform-
                           ance measures that address key
                           program objectives; ii) review the
                           current state database to deter-
                           mine whether required data is
                           currently recorded; and iii) mod-
                           ify the current state database to
                           include the missing data fields.
                           The LUST module of "UST Ac-
                           cess," a database system devel-
                           oped by the USEPA Office of Un-
                           derground Storage Tanks (OUST),
                           is an example of a database that
                           contains many of the required
                           data fields and can also be readily
                           modified or queried for evalua-
                           tion purposes. For more informa-
                           tion on UST Access, contact
                           USEPA OUST at the web address
                           provided at the end of this bulle-
                           tin.

                           In addition to these general
                           guidelines, results of this pilot
                           study show that the following
                           database parameters can signifi-
                           cantly impact the ability to track
                           program performance:

                           1) Basis for Closure: As a sup-
                           plement to the time to closure
                           measure, a "Basis for Closure"
                           field can be used to record the
                           reason that the case qualified for
                           closure. Tracking the reason for
                           case closure would assist in iden-
                           tifying the types of sites being
                           managed efficiently under RBDM,
                           as well as those for which
                           achieving closure is still difficult.
                                   In addition, this field will allow a
                                   more complete interpertation of
                                   the "time to closure" measure.

                                   To assist in analysis of this per-
                                   formance data, die reason for clo-
                                   sure should be based on defined
                                   categories, such as those listed  on
                                   Table 3.

                                   2)  Risk Reduction: Surveying the
                                   risk-based site classification of  the
                                   LUST site population over time
                                   (as shown on Figure 3) can serve
                                   as a convenient measure of risk-
                                   reduction. If the RBDM program
                                   is effectively reducing risk, the
                                   site classification profile should
                                   reflect a general shift toward low-
                                   risk categories from year to year.
                                   However, to measure risk reduc-
                                   tion, the  site classification system
                                   must be based on the magnitude
                                   and immediacy of potential im-
                                   pacts on site receptors, using crite-
                                   ria similar to those employed in
                                   the ASTM RBCA site classification
                                   system (ASTM, 1995). Classifica-
                                   tion systems based on physical
                                   site characteristics (e.g., soil type,
                                   groundwater velocity, chemical
                                   contaminants) do not reflect the
                                   change in risk conditions as
                                   remediation progresses and risks
                                   are mitigated. Furthermore, to
                                   quantify risk reduction, both the
                                   initial and the current risk classifi-
                                   cation must be recorded for each
                                   site. The initial risk classification
                                   remains fixed; however, the cur-
                                   rent risk classification can change
                                   as site remediation progresses.
March 2000
RBDM Performance Assessment Bulletin #2
      Page 8 of 11

-------
                           TABLE 3. POTENTIAL LUST CASE CLOSURE CATEGORIES
CLOSURE
CATEGORY
No Action
Risk Assessment
Soil Excavation
Monitored Natural
Attenuation
Active Soil Remedy
Active Groundwater
Remedy
DESCRIPTION , •,."...'
K * * ~ ™ r f ! "^ * *="5
Soil and groundwater constituent concentrations are less
than generic screening levels; no remedy or monitoring re-
quired.
Soil and groundwater constituent concentrations are less
than site-specific risk-based standards; no remedy or moni-
toring required.
Site qualified for closure following excavation of affected site
soils.
Site qualified for closure following monitored natural at-
tenuation of affected groundwater.
Site qualified for closure following on-site treatment of soils.
Site qualified for closure following active groundwater reme-
diation.
                           Using this approach, total risk re-
                           duction over time for the full
                           LUST case population can be
                           quantified as illustrated in Fig-
                           ure 3.
                           The site constituent reduction
                           factor (CRF, the ratio of site con-
                           centration to site-specific clean-up
                           standard for specific constituents)
                           can be used as an additional
                           measure of site risk reduction
                           over time. This performance
                           measure requires that both the
                           initial and current site concentra-
                           tions and the applicable site-
                           specific clean-up  standards be re-
                           corded for key constituents.
                           However, the CRF may be diffi-
                           cult to interpret at sites where ex-
                           posure control remedies are se-
                           lected.
                           3) Remediation  Cost: Informa-
                           tion on the cost of site remediation
                           is typically recorded in a database
                           separate from the other program
                           performance data. In addition,
                           cost data is often  limited to reim-
                           bursed costs for sites eligible for
                           state funded remediation.
                           The addition of a "Total Reme-
                           diation Cost" field to the primary
                           state database would allow an
                           analysis of remediation costs for
                                   all sites regulated under the state
                                   corrective action program.  This
                                   cost data can be collected by re-
                                   questing an estimated total reme-
                                   diation cost, inclusive of site as-
                                   sessment and response action
                                   costs, as part of the final request
                                   for case closure.
                                   4) Specific Constituents: As
                                   demonstrated by the recent focus
                                   on MTBE at LUST sites, the pres-.
                                   ence of fuel oxygenates in
                                   groundwater may have a signifi-
                                   cant impact on regulatory pro-
                                   gram performance of RBDM. Re-
                                   cording the specific constituents
                                   which exceed remediation goals at
                                   each site could serve to illustrate
                                   the effect of individual constitu-
                                   ents on case closure, remediation
                                   cost,  or other performance meas-
                                   ures.

                                   For some states, recording addi-
                                   tional program performance data
                                   in an electronic database may rep-
                                   resent a significant burden in
                                   terms of cost and manpower re-
                                   quired to obtain, validate, and in-
                                   put the data. Clear and simple
                                   guidelines for submittal of re-
                                   quired site reports can serve to
                                   reduce the burden of recording
March 2000
RBDM Performance Assessment Bulletin #2
                                                                                  Page 9 of 11

-------
                           program performance data. For
                           example, standardized reports or
                           summary forms can provide key
                           performance data in standardized
                           locations, facilitating the transfer
                           of this data to the state database.
                           Alternatively, states can request
                           submittal of an electronic data
                           summary which contains key per-
                           formance data formatted for direct
                           transfer to the state database.

                           Conclusions
                           In the majority of pilot states, im-
                           plementation of an RBDM pro-
                           gram resulted in an immediate
                           increase in site  closures and a sta-
                           bilization or decrease in case
                           backlog. The reduction in case-
                           backlog represents a decreased
                           administrative burden for the cor-
                           rective action program. Average
                           age at closure generally increased
                           which, combined with the in-
                           crease in case closures, indicates
                           that many older sites are being
                           closed using RBDM. Evaluation
                           of site risk classifications in the
                           backlog population indicates that
                           the RBDM programs are effec-
                           tively targeting low-risk sites for
                           closure while retaining higher-risk
                           for further action.  Additional
                           study is needed to determine the
                           impact of RBDM on the remedia-
                           tion and closure of these higher-
                           risk sites.

                           Next Steps
                           As demand for government ac-
                           countability increases, more states
                           will need to utilize performance
                           measures to document program
                           performance and identify oppor-
                           tunities for increased efficiency.
                           In addition, as a result of the Gov-
                           ernment Performance and Results
                           Act of 1993, which requires formal
                           cost/benefit evaluations of many
                           federal government programs,
                           agencies are under increasing
                                    pressure to effectively track pro-
                                    gram performance. Many state
                                    programs are facing similar pres-
                                    sures due to state legislative man-
                                    dates. As state RBDM programs
                                    mature and additional perform-
                                    ance data are collected, future
                                    bulletins may be issued to track
                                    performance assessment efforts
                                    and address specific issues that
                                    may arise. Future bulletins will
                                    be available at:
                                    www.epa.gov / OUST / rbdm

                                    Additional Information

                                    For more information on RBDM
                                    programs and their implementa-
                                    tion, see the following sources:

                                    Websites
                                    OUST Risk-Based Decision-
                                    Making: www.epa.gov/OUST/rbdm

                                    ASTM Standards: www.astm.org

                                    RBCA State Policy Issues Database:
                                    www.gsi-net.com/RBCAPOL

                                    Publications
                                    1.  American Society for Testing and
                                       Materials, 1995, "Standard Guide
                                       for Risk-Based Corrective Action
                                       Applied at Petroleum. Release
                                       Sites," ASTME-1739-95, Philadel-
                                       phia,  PA.
                                    2.  American Society for Testing and
                                       Materials, 1998, "Standard Provi-
                                       sional Guide for Risk-Based Cor-
                                       rective Action," ASTM PS 104-98,
                                       Philadelphia, PA.

                                       Materials, 1999, "Risk-Based Deci-
                                       sion-Making Performance Assess-
                                       ment Study Bulletin #1: Study
                                       Background, Potential Performance
                                       Measures, and Preliminary Find-
                                       ings," Philadelphia,  PA.
                                       http: / / wwTv.epa.gov/swerustl /
                                       rbdm/techimpl.htm
                                    4.  Groundwater Services, Inc., 1995,
                                       "Tier 2 RBCA Guidance Manual,"
                                       Houston, Texas, 713/522-6300.
                                    5.  Malaier, D. S., 2000,  Alabama De-
                                       partment of Environmental Man-
March 2000
RBDM Performance Assessment Bulletin #2
                                                         Page 10 of 11

-------
   agement, Personnel Communica-
   tion.
/•  »«•• u-    T-.-O,-. inn^ in     if
   ^S^Dfa 1996  Impact of
   1?95 and 1996 Amendments to Part
   213, Leaking Underground Storage
   Tanks, 1994 PA 451, As Amended,"
   State of Michigan Department of
   Environmental Quality.
7.  USEPA Office of Solid Waste and
   Emergency Response (OSWER),
   1996, "Use of Risk-Based Decision-
   Making in UST Corrective Action
   Programs," OSWER Directive
March 2000
RBDM Performance Assessment Bulletin #2
                      Page 11 of 11

-------

-------