v>EPA
United States
Environmental Protection
Agency
Off ice of Emergency
and Remedial Response
Washington DC 20460
2nd Printing
November 1982
HW-3
EPA's Emergency
Response Program
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Introduction
Introduction
Train derailments can re-
lease hazardous substances
over large areas, possibly
requiring evacuation of
nearby residents.
In satisfying the American
public's demand for sophis-
ticated products, modern tech-
nology's response is ingenious
and complex. Sometimes that
technology generates trouble-
some by-products as well
hazardous wastes.
Effective, error-free handling of
such wastes has improved tre-
mendously under rapidly-
advancing disposal technology
and enactment in 1976 of the
Resource Conservation and
Recovery Act (RCRA), which
for the first time established
controls for the generation,
transportation and disposal of
hazardous wastes.
While it provided the tools to
track and regulate the handling
of such substances, however,
RCRA did not deal with exist-
ing hazardous sites which had
become troublesome as a
result of past improper dis-
posal practices. These sites,
as well as accidents in the
handling or transportation of
hazardous substances, can
present emergency situations
requiring an immediate clean-
up or removal.
Federal authority found in Sec-
tion 311 of the Clean Water
Act has existed for many
years to respond to releases
of oil and hazardous sub-
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Introduction
The swollen bottom on this
drum indicates a serious
threat of leakage.
stances into the nation's
navigable waters. This author-
ity is assigned to the Environ-
mental Protection Agency and
the Coast Guard. The Clean
Water Act also established a
fund to finance these re-
sponses. However, it provided
only limited authority and
limited funds to tackle the
variety of problems caused by
release of hazardous sub-
stances into land, ground
water and air.
To provide a more effective
and comprehensive response
to the foregoing problems,
Congress in 1980 enacted the
Comprehensive Environmental
Response, Compensation, and
Liability Act. Popularly referred
to as "Superfund," CERCLA
and Section 311 of the Clean
Water Act permit the Federal
government to work with State
and local governments to pro-
vide an immediate and com-
prehensive response to acci-
dental release of hazardous
substances.
Superfund cleanups are
financed by a trust fund which
will grow to $1.6 billion over a
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Introduction
Barges carrying large car-
goes ol hazardous mate-
rials may break loose and
strike bridges and other
structures. This barge mas
secured in time, preventing
potentially serious damage
to the waterway.
five-year period. The fund can
be used to provide both emer-
gency and long-term cleanup
of releases of hazardous sub-
stances and inactive waste
sites. It is collected through
taxes paid by manufacturers,
producers, and exporters and
importers of oil and 42 chem-
ical substances.
In 1968 the Federal govern-
ment established the first
National Contingency Plan to
respond to emergencies
caused by oil spills and
releases of hazardous sub-
stances in navigable waters.
Superfund required EPA to
revise and republish the Plan
to cover all of the actions
which can now be taken
under both Superfund and the
Clean Water Act. The Plan
details the responsibilities of
14 Federal agencies and State
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Introduction
When a hazardous sub-
stance ignites, it not only
presents the immediate
dangers of heat and smoke
but it can spread hazardous
particles and vapors over
wide areas.
and local governments for
cleaning up releases of haz-
ardous substances and oil
spills to all media (land, air,
surface water and ground
water).
In general the Plan:
Encourages coordination
of Federal, State and
local government involve-
ment in response actions;
Allows State and local
governments to be reim-
bursed by the Federal
government for reason-
able response costs; and
Authorizes the Federal
government to undertake
cleanup when the re-
sponsible party or the
State cannot or will not
do so.
Primary responsibility for deal-
ing with accidental releases in
or near coastal waters and
the Great Lakes is with the
Coast Guard. The lead respon-
sibility for other emergencies
occurring inland or in inland
waters belongs to EPA, as
specified by an agreement be-
tween EPA and the Coast
Guard. EPA responses are co-
ordinated by its Emergency
Response Division with the
assistance of the Hazardous
Response Support Division.
Both are a part of the Office
of Solid Waste and Emer-
gency Response.
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Emergency Response Program
Emergency
Response
Program
Two types of removal actions
are carried out by EPA in its
emergency response program:
immediate removals and
planned removals.
Immediate Removals
Immediate removals are trig-
gered by immediate and sig-
nificant emergencies involving
Chemical foams are often
used to prevent evapora-
tion of hazardous sub-
stances or to extinguish
fires resulting from acci-
dents. Response personnel
wear protective clothing
while handling these
chemicals.
hazardous substances. Such
emergencies might include:
Fires or explosions;
Direct human contact
with a hazardous sub-
stance;
Human, animal or food-
chain exposure to such a
substance;
Contamination of a drink-
ing water supply; and
Similar situations.
An immediate removal is a
first-aid approach to an emer-
gency. It involves cleaning up
the hazardous site as neces-
sary to protect life and human
health, stopping the hazardous
release and minimizing dam-
age or threat of damage to the
environment. If there has been
a spill (from a truck, derailed
train or barge, for example)
the response will continue until
the spill is cleaned up. Inactive
hazardous waste sites will be
stabilized but the cleanup may
continue beyond stabilization if
this course appears less
expensive than stopping and
returning later for final cleanup
or remedial action.
Specifically, immediate re-
moval responses may include:
Collecting and analyzing
samples;
Controlling the release;
Removing hazardous sub-
stances from the site and
storing, treating or
destroying them;
Providing alternate water
supplies;
Installing security fencing;
Deterring the spread of
the pollutants; and
Evacuating threatened
citizens.
Planned Removals
A planned removal occurs
when the hazard is substantial
and imminent but constitutes
something less than an im-
mediate emergency. Such a
removal assumes that, while
the situation is deteriorating,
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Emergency Response Program
Above: Workers with
protective suits and self-
contained breathing units
extract samples from
drums. Samples are sent
to a chemical laboratory
for analysis.
time is available to plan an ap-
propriate response before
reaching the site. Under
Superfund, a planned removal
may be initiated if:
The action will minimize
damages or risks and pre-
clude future emergency
response actions;
Removal is consistent
with the most effective
long-term solution to the
problem;
The responsible party is
unknown, cannot be
found, or cannot or will
not take timely and appro-
priate action;
The State agrees to pay
at least 10 percent of the
costs of the removal
action; and
The State agrees to nom-
inate the site to the Na-
tional Priority List for
remedial actions, if further
action at the site is con-
sidered appropriate once
the removal is completed.
The planned removal response
will be chosen only after analy-
sis of removal alternatives to
determine the quickest and
least costly approach. The
selected course of action also
must be reliable and effective,
and consistent with the prob-
able long-term solution.
The planned removal ends
when the situation is stabilized
and the imminent danger has
been abated. The operation
may continue, however, if the
cleanup can be completed
within a short time and at a
low cost.
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Emergency Response Program
Hazardous
Substance
Cleanup: An
Industry-
Government
Partnership
In practice about 90 percent
of all emergency cleanups and
removals are handled by the
responsible partyusually the
generator, transporter or dis-
poser of the waste. The re-
mainder are cleaned up by an
industry-governmental partner-
ship. If government resources
are called upon, a variety of
local, State and Federal agen-
cies may be called into action.
Superfund and Section 311 of
the Clean Water Act require
that EPA, the Coast Guard, the
Federal Emergency Manage-
ment Agency, the Department
of Health and Human Services,
the Department of the Interior,
and nine other Federal agencies
cooperate as members of the
National and Regional Re-
sponse Teams to coordinate
activities in cases of emer-
gency. Additional Federal
agencies which may be in-
volved are the Departments of
Agriculture, Commerce,
Defense, Energy, Justice,
Labor, State, and Housing and
Urban Development; and the
Emergency situations in-
volving hazardous sub-
stances require specific
techniques, equipment and
personal safety protection.
Above: Firefighters respond
to a night emergency.
Lime applied to these
emptied and crushed drums
neutralizes remaining
residues of hazardous
substances.
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Emergency Response Program
Small Business Administration.
In the event Federal services
are called upon:
The Coast Guard or EPA
assumes primary respon-
sibility to respond,
depending upon the loca-
tion of the emergency;
The Federal Emergency
Management Agency is
responsible for evacu-
ations;
The Fish and Wildlife Ser-
vice in the Department of
the Interior and the National
Marine Fisheries Service
in the Department of
Commerce conduct re-
search into the effects of
the disaster on marine,
aquatic and terrestrial life;
The Public Health Service
in the Department of
Health and Human Ser-
vices investigates inci-
dents of hazardous sub-
stance exposure to
humans and threats to
the public welfare; and
Other agencies play roles
related to their respective
authorities if the emer-
gency requires it.
When To Notify
The Government
When release of a hazardous
substance creates an emer-
gency situation, local police
and fire departments probably
will be the first agencies in-
volved. While they are taking
initial protective actions, how-
ever, local officials may be
calling upon State and Federal
agencies for assistance.
The responsible partysuch
as a generator, transporter or
disposer of hazardous waste
must also notify the Federal
government of any release of
a hazardous substance. Sec-
tion 102 of CERCLA the
Superfund Act, prescribes the
substances and amounts to be
reported immediately when
released. Section 103 requires
the releaser to notify the Na-
tional Response Center in
Washington (800-424-8802,
Toll-free anytime) immediately.
This Center is operated by the
Coast Guard.
To request Federal assistance
under Superfund, a State or
local government should con-
tact its nearest EPA Regional
Office.
When the National Response
Center is notified, the lead
responsibility is immediately
assumed by EPA or the Coast
Guard, depending upon the
location and nature of the
emergency. The lead agency
then appoints an On-Scene
Coordinator (OSC) to co-
ordinate and monitor all
protective and precautionary
activities to ensure that every-
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The grappfer's specially-
designed pickup arm helps
remove hazardous waste
drums from an inactive dis-
posal site.
thing possible is done to pro-
tect public health and the
environment.
The Federal Role
The OSC, upon reaching the
removal site, assesses the
nature and magnitude of the
situation. A decision is then
made to assist or monitor in-
dustry or local officials in their
cleanup or to seek assistance
of the EPA Regional Emer-
gency Response Offices and
the special Environmental
Response Teams based in
Cincinnati, Ohio, and Edison,
New Jersey.
As part of EPA's policy of
keeping the public accurately
informed, the OSC may also
seek assistance from the
Agency in coordinating infor-
mation for the media and pro-
viding liaison with citizens
organizations as necessary.
According to CERCLA an offi-
cial Federal removal action
may be considered in cases
where:
The discharger is unknown;
The discharge is caused
by an act of God or war,
or
The responsible party
cannot or will not respond
adequately.
Under Superfund, governmen-
tal emergency response is
able to achieve the highest
degree of inter-agency and
inter-governmental teamwork.
If Federal authorization is pro-
vided, State and local govern-
ments may conduct the clean-
ups and reimbursement will be
made by Superfund. The Fed-
eral government itself may
conduct the removal if the
State or local government
requests assistance.
In either case, the Federal
government retains its impor-
tant advisory and coordination
role. EPA's scientific resource
and its specialized monitoring,
sampling and safety equip-
ment will support State and
local efforts. Superfund will be
the key source of cleanup
money.
To help keep the fund solvent,
Superfund also provides that
the responsible party may be
liable for punitive damages of
up to three times the cost of
the Federal removal for failure
to respond properly to the
emergency
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Research and Development
Controlling and cleaning up
hazardous substances is a rel-
atively new field. New equip-
ment and new techniques are
required to respond quickly
and effectively to emergen-
cies, and to dispose of the
materials in a way that is
environmentally safe. Both
industry and EPA are working
diligently to learn more about
controlling such substances
and to develop new cleanup
techniques and equipment.
EPA's "Blue Magoo" can
be moved quickly to
hazardous waste sites to
remove hazardous sub-
stances from contaminated
water.
Much of the development and
testing related to the Emer-
gency Response Program oc-
curs at EPA's Environmental
Emergency Response Unit
(EERU) in Edison, New Jersey.
EERU is a cooperative effort
among emergency response
research personnel at Edison,
the Environmental Response
Team, other EPA operational
personnel, and contractors
from private industry. As new
equipment is developed and
tested satisfactorily, it is util-
ized by EERU in actual emer-
gencies; it is also used in train-
ing courses and in develop-
ment of emergency response
assistance manuals. Additional
R&D support is provided at
other EPA research install-
ations.
Chemical Cleanups
A number of special cleanup
equipment designs are under
development at Edison. One,
designed for cleanup of chem-
ical substances, is a fully-
operational Physical-Chemical
Treatment Trailer nicknamed
the "Blue Magoo." A combi-
nation of treatment units
mounted on a flatbed trailer
truck, the Blue Magoo is capa-
ble of being transported to an
emergency site.
The treatment technology was
adapted from equipment cur-
rently used for conventional
water pollution contr I treat-
ment. The physical-cnemical
treatment concept for hazard-
ous substances has now been
adopted by at least two com-
mercial cleanup equipment
manufacturers.
Still in the development and
demonstration stage is a
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Research and Development
Oil is released into the EPA
OHMSETT tank at Edison,
New Jersey, to test spill
cleanup methods and
equipment.
mobile hazardous waste incin-
eration system. This unit will
be capable of on-site thermal
detoxification of many hazard-
ous materials such as PCBs,
kepone, malathion, and TCDD.
The system is mounted on
three over-the-road semi-
trailers to facilitate trans-
portation to operating sites.
Oil Cleanups
EPA also conducts a wide-
ranging oil spills research pro-
gram under Section 311 of the
Clean Water Act. Major re-
search and development ef-
forts for oil spills include:
Construction and opera-
tion of a Spill Cleanup
Testing Facility at
Leonardo, New Jersey.
The testing facility, called
the Oil and Hazardous
Materials Simulated En-
vironmental Test Tank
(OHMSETT), is a large
concrete tank with a
mobile bridge. It permits
enironmentally-safe test-
ing of spill cleanup
methods and equipment.
Oil spill containment
booms, skimmers and dis-
persing agents can be
tested repeatedly to in-
sure reliability and
efficiency.
Evaluation of chemical
dispersants developed by
industry, and techniques
for applying them from
ships and aircraft in rough
seas.
Techniques for cleaning
up and protecting shore-
lines and beaches. The
Edison facility, for exam-
ple, is investigating use of
chemical agents which
could be applied before
an oil slick arrives. These
agents form a thin film
that prevents the oil from
adhering to the beach
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Research and Development
Emergency Assistance
During the past several years,
the EERU has responded to a
variety of emergencies involv-
ing contamination of ground
water, surface water and
drinking water by spills of
hazardous substances and
oils The unit also has provided
Training
In order to disseminate the
latest knowledge on new
emergency techniques and
equipment, EERU has de-
signed a comprehensive one-
week training course for emer-
gency response personnel
from Federal, State and local
EPA's mobile hazardous
waste incineration system
is mounted on three semi-
trailers to facilitate trans-
portation to hazardous
substances sites.
emergency responses to un-
controlled waste sites. EERU
activities during these emer-
gencies included:
Evaluation of the severity
and extent of contami-
nation,
On-site analytical support,
Recommendation of safe,
effective treatment and
disposal options; and
Supervision of spill clean-
up operations
organizations and private
industry.
The course, entitled "Hazard-
ous Materials Incident Re-
sponse Operations," is offered
at EERU's Edison facility. Its
goal is to train response offi-
cials in the latest emergency
procedures, team organization
and functioning, and safety.
The course consists of lec-
tures followed by problem-
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Research and Development
solving sessions in the class-
room or outdoor exercises.
Subjects include those con-
cepts and principles asso-
ciated with all response
activities:
Recognizing the hazards
associated with specific
materials.
Determining the risks to
the public and the
environment.
Developing methods to
reduce or prevent the ef-
fects of an incident.
Insuring protection and
safety of response
personnel.
The course is limited to 18
participants per session. Dur-
ing the first part of the instruc-
tion, students are divided into
small work groups which study
and practice problem-solving
and decision-making involved
in the foregoing concepts. Par-
ticipants are next instructed in
the use of protective clothing
and breathing equipment, after
which they actually use the
equipment in a smoke-filled
environment, on obstacle
courses and while operating
field instruments.
Final exercises are designed
to test students' ability to
utilize the information pre-
sented to them in a full-scale
environmental episode. They
are confronted with two simu-
lated exercises, both based
upon actual emergencies,
which require practical appli-
cation of the techniques
learned earlier.
The course has proven to be
one of EERU's most effective
means of involving emergency
response personnel in the
complexities of such a
response and the need for in-
formed, well-coordinated
teamwork to resolve the
problem.
Several hundred emergency
response personnel have com-
pleted the course since it was
inaugurated in 1981. Gradu-
ates include all members of
EPA's Emergency Response
Division, other Federal officials
with emergency responsibili-
ties, and response personnel
from State, local and private
organizations.
The course currently is being
offered once each month. Fur-
ther information is available
from:
Thomas Sell
Training Coordinator, ERT
U.S. Environmental Protection
Agency
26 West St. Clair Street
Cincinnati, Ohio 45268
513-684-7537
FTS-684-7537
13
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Research and Development
EPA sponsors nationwide
training for representatives
of industry, tire depart-
ments, and State and local
governments. Right and
below: Trainees learn how
to don and use the self-
contained breathing appa-
ratus often required for
respiratory protection.
Manuals
In connection with its develop-
mental testing and training
functions, EPA publishes an
extensive series ot manuals to
assist emergency response
personnel in planning and con-
ducting cleanup operations.
In an effort to achieve a
uniform and cohesive national
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Research and Development
response program, the Agency
develops manuals in emer-
gency response methodology,
adaptation of latest cleanup
techniques, uniform communi-
cations terminology and
administrative procedures,
guidance on decision-making,
and instructional and refer-
ence manuals for students in
the ERT training courses.
Inside this EPA mobile
laboratory, scientists and
technicians test soil and
water samples for hazard-
ous substances.
Recently published manuals
deal with pesticide disposal,
contingency planning (in coop-
eration with the Federal Emer-
gency Management Agency),
and control of hazardous ma-
terials spills. Currently avail-
able manuals on emergency
response to spills include:
Manual of Practice for
Protection and Cleanup of
Shorelines
Manual for Control of
Hazardous Material Spills
Hazardous Materials Inci-
dent Response Opera-
tions
All emergency response man-
uals are published and made
available through the National
Technical Information Service,
Springfield, Virginia 22161.
Further information may be
obtained from NTIS, from
EPA's Emergency Response
Team or any EPA Regional
Office.
Identification
Each hazardous substance
has special properties that dic-
tate its handling and disposi-
tion. A substantial portion of
EPA's hazardous substance
research is designed to de-
velop methods of identifying
these properties. These pro-
grams are conducted at EPA's
Environmental Monitoring Sys-
tems Laboratory in Las Vegas,
Nevada. Major research ef-
forts there include:
Evaluation of proposed
sampling, analysis and
classification procedures;
Improvement of monitor-
ing procedures at dispos-
al and cleanup sites; and
Development of a quality
assurance program to
guarantee the reliability of
data.
lb
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EPA files document many
cases of damage to life and
the environment from im-
proper disposal of hazardous
substances or accidental
spills. Dangers also develop
from release of such sub-
stances into rivers, lakes and
other surface waters, from air
pollution, fire, explosions and
soil contamination.
But it must be remembered
that 90 percent of all releases
of hazardous substances are
cleaned up quickly and quietly,
without fanfare, by those who
have immediate responsibility.
In the remainder of emer-
gency episodes, Superfund
and Section 311 of the Clean
Water Act now permit the
highest degree of inter-
governmental coordination
and effectiveness whenever
private industry requests
emergency assistance.
This inter-governmental coor-
dination, together with con-
stantly improving technology
and a growing environmental
awareness by industries which
generate, transport and dis-
pose of hazardous waste, are
being translated daily into
increased environmental pro-
tection and safety for the
American public.
16
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For more information on Superfund's Emergency Response Program contact:
EPA Regional
Emergency
Response
Offices
Region I
Chief, Oil & Hazardous Materials Section
Surveillance and Analysis Division
60 Westview Street
Lexington, MA 02173
(617)861-6700
Region II
Chief, Emergency Response and
Hazardous Materials
Inspection Branch
Environmental Services Division
Edison, NJ 08837
(201)321-6657
Region III
Chief, Environmental Emergency Branch
Curtis Building 3ES30
6th & Walnut Streets
Philadelphia, PA 19106
(215)597-3024
Region IV
Chief, Emergency Remedial & Response
Branch
345 Courtland Street, NE
Atlanta, GA 3J365
(404) 881-3931
Region V
Chief, Spill Response Section
Environmental Services Division
5SEES
536 South Clark Street
Chicago, IL 60605
(312)353-2316
Region VI
Chief, Emergency Response Branch
6ESE
1201 Elm Street
First International Building
Dallas, TX 75270
(214) 767-2720
Region VII
Chief, Emergency Planning & Response
Branch
Environmental Services Division
25 Funston Road
Kansas City, KS66115
(816)374-4482
Region VIII
Chief, Emergency Response Branch
Environmental Services Division
1860 Lincoln Street
Denver, CO 80295
(303) 837-2468
Region IX
Chief, Emergency Response Section
T-3-3
Compliance & Response Branch
Toxic & Waste Management Division
215 Fremont Street
San Francisco, CA 94105
(415)974-8132
Region X
Chief, Environmental Emergency
Response Team
Environmental Services Division
1200 6th Avenue
Seattle, WA 98101
(206)442-1263
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