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Powerpoint for osba 2012 environmental conference
1.
Shale Gas Operations Evolving
Air & Water Regulations by Mary Ann Poirier Ohio State Bar Association’s 27th Annual Ohio Environment, Energy and Resources Law Seminar, April 20, 2012 1 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
2.
We will be
covering: ODNR vs. Other Authorities’ Roles Air Issues U.S. EPA Oil and Gas NSPS/NESHAP Ohio Air General Permit Stationary Engines Aggregation / Source Determination Other air issues Water Issues NPDES Exemption / WQS Dredge & Fill Permits (Wetlands / Streams) Other pending water issues 2 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
3.
ODNR’s Almost-Exclusive Role:
ORC § 1509.02: There is hereby created in the department of natural resources the division of oil and gas resources management . . . . The division has sole and exclusive authority to regulate the permitting, location, and spacing of oil and gas wells and production operations within the state, excepting only those activities regulated under federal laws for which oversight has been delegated to the environmental protection agency and activities regulated under sections 6111.02 to 6111.029 of the Revised Code. The regulation of oil and gas activities is a matter of general statewide interest that requires uniform statewide regulation, and this chapter and rules adopted under it constitute a comprehensive plan with respect to all aspects of the locating, drilling, well stimulation, completing, and operating of oil and gas wells within this state, including site construction and restoration, permitting related to those activities, and the disposal of wastes from those wells. ( . . . cont’d) 3 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
4.
ODNR’s Almost-Exclusive Role,
cont’d: ORC 1509.02, cont’d: Nothing in this section affects the authority granted to the director of transportation and local authorities in section 723.01 or 4513.34 of the Revised Code, provided that the authority granted under those sections shall not be exercised in a manner that discriminates against, unfairly impedes, or obstructs oil and gas activities and operations regulated under this chapter. 4 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
5.
ODNR’s Almost-Exclusive Role,
cont’d: The exceptions: Activities regulated under federal laws for which oversight has been delegated to OEPA E.g., air impacts; NPDES, related water issues, waste- handling Activities regulated under sections 6111.02 to 6111.029 of the Revised Code. Impacts to isolated wetlands (wetlands not subject to CWA) ORC § 723.01 Municipal regulation of streets ORC § 4513.34 Permits for oversized vehicles 5 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
6.
Steps from Wellhead
to Market 1. Drilling 2. Completion Upstream/Wellhead 3. Production Midstream* 1. Gathering 2. Processing 3. Storage 4. Transmission 1. Selling Downstream 2. Distribution * Midstream often considered a subset of downstream Source: http://www.epa.gov/gasstar/basic-information/ 6 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
7.
Regulation of Air
Impacts Potential Air Emission Sources and Issues Engine emissions from drill rigs, fracking equipment and on-site power generation Fugitive emissions from hydrocarbons in flowback Emissions from venting and flaring of gas during flowback (prior to routing of gas to gathering or capture) Separators (to heat multi-phase production) Storage vessels Pneumatic controls Glycol dehydrators Compressors Desulfurization units 7 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
8.
Regulation of Air
Impacts U.S. EPA Final NSPS and NESHAP for oil and gas (final rule signed April 17, 2012; not yet published in Fed. Reg.): New Source Performance Standards (NSPS) Under Section 111 of the Clean Air Act (CAA) For new, modified or reconstructed sources in categories of stationary sources that EPA has determined cause or contribute significantly to air pollution Based on best system of emission reduction 8-year review, revised as appropriate NSPS at issue: 40 CFR part 60, subpart KKK: leak detection of VOCs & repairs at gas processing plants 40 CFR part 60, subpart LLL: SO2 controls at gas processing plants Set in 1985 Duty to comply stems from proposal of revised NSPS (Aug. 23, 2011) 8 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
9.
Regulation of Air
Impacts EPA Final NSPS and NESHAP for oil and gas, cont’d: National Emissions Standards for Hazardous Air Pollutants (NESHAP) Under Section 112 of the CAA For major sources: those with PTE 10 tpy of a hazardous air pollutant (HAP), or those with PTE 25 tpy of any combination of HAPs Based on the maximum degree of emission reductions of HAP achievable (“maximum achievable control technology” or MACT) 8-year technology review & one-time “residual risk” review NESHAPs at issue: Benzene, toluene, ethylbenzene, xylene and n-hexane 40 CFR part 63, subpart HH: oil and natural gas production operations (tanks, leaks, certain glycol dehydrators) 40 CFR part 63, subpart HHH: glycol dehydrators at natural gas transmission and storage operations that are considered major Set in 1999 9 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
10.
Regulation of Air
Impacts EPA NSPS/NESHAP Final Rule, cont’d: Background behind rulemaking: “Deadline suit” brought by WildEarth Guardians & San Juan Citizens Alliance in January 2009, U.S. District Court in D.C.; resulted in consent decree July 28, 2011: signature date for proposal (published August 23, 2011*) November 30, 2011: comment deadline March 2, 2012: sent by EPA to OMB April 3, 2012: signature date for final May ?? Publication in Fed. Register Significant claims by EPA: Methane emissions significantly reduced (not directly controlled) – 1.0 to 1.7 million short tons (revised from 3.4 mill tons in proposed rule) Industry will actually save money! ($11 to 19 million annually [revised from $30 million estimated in proposed rule]) But API study released March 15, 2012: production from shale will decrease 31% to 51% 10 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
11.
Regulation of Air
Impacts EPA NSPS/NESHAP Final Rule – NSPS Component: New 40 CFR Part 60, Subpart OOOO Well completions & recompletions: Phase 1: before January 1, 2015 Reduce VOCs either by: Flare using completion combustion device (NOx by-product), OR Green completion, a.k.a. “reduced emissions completion” Phase 2: after January 1, 2015 Operators must capture gas (such as by green completions) Exceptions for certain new wells (flaring ok): exploratory wells, low p wells Refractured/recompleted wells using green completions not considered “modified” 2-day advance notice (30-day had been proposed); annual reporting; final rule does not include post 30-day report 11 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
12.
Regulation of Air
Impacts EPA NSPS/MACT Final Rule – NSPS Component, cont’d: Centrifugal natural gas compressors Use of dry seal systems encouraged; not “affected facilities” under rule If wet seals, must achieve 95% VOC reduction (thru flaring or capture) Reciprocating compressors Rod packing changed every 26,000 hours (documented) or every 36 months Pneumatic controllers (continuous bleed, natural gas-driven) At processing plants: 0 emissions limit (few exemptions) Other locations (e.g., gathering / boosting stations) Bleed limit of 6 scf/hr 1-year phase-in 12 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
13.
Regulation of Air
Impacts EPA NSPS/MACT Final Rule – NSPS Component, cont’d : Storage tanks If > 6 tons emissions/year, must achieve 95% reduction in VOC emissions (1-year phase-in) If at well sites with no wells in production, 30 days from start-up to determine amount, 30 days to add controls Existing NSPS for processing plants Tighten requirements for leak detection and repair (LDAR) to reflect VOC equipment leak standards at 40 CFR 60, subpart VVa ; changes “leak” def’n from 10,000 ppm to 500 ppm Tighten SO2 controls (up to 99.9% control) for facilities with highest sulfur feed rates and H2S concentrations 13 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
14.
Regulation of Air
Impacts EPA NSPS/MACT Final Rule – NSPS Component, cont’d : Apply during startup, shutdown & malfunction (SSM) Affirmative defense if malfunction Annual certification of compliance (with annual report), plus other notice & recordkeeping 14 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
15.
Regulation of Air
Impacts EPA NSPS/MACT Final Rule – NESHAP Component: Glycol dehydrators at production facilities and natural gas transmission and storage sources: Large dehydrators: 95% reduction in total air toxics or “benzene 1 tpy compliance option” (departure from proposal) Small dehydrators: Must meet unit-specific BTEX limits based on formula (small if annual avg. natural gas < 85,000 scf/day or actual annual benzene < 1 TPY) Storage vessels: Requirements – namely closed vent systems, 95% emission reduction – apply to storage vessels with potential for flash emissions (departure from proposal, which applied to all) 15 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
16.
Regulation of Air
Impacts EPA NSPS/MACT Final Rule – NESHAP Component, cont’d: Change in “leak” definition for valves: From 10,000 parts per million (ppm) to 500 ppm Elimination of startup, shutdown & malfunction exemption Affirmative defense if malfunction Compliance deadlines depend on specific source 16 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
17.
Regulation of Air
Impacts OEPA Air General Permit Finalized Feb. 1, 2012 Covers equipment during production phase of shale well; drilling and completion activities are exempt For non-Title V Facilities (i.e., non-major) Permit constitutes both permit-to-install (ORC 3704.03(F)) & permit-to-operate (ORC 3704.03(G)) 17 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
18.
Regulation of Air
Impacts OEPA Air General Permit, cont’d Multiple emission sources covered: Glycol dehydration unit Limits for VOCs (not CH4, C2H6), SO2, CO from flares, visible emissions Natural gas and diesel engines HP ≤ 1800; if diesel, certified to Tier 3 with combined HP ≤ 250 Varying limits (depending on HP) for CO, NOx, VOCs Also limits on particulate emissions, SO2, PM (diesel), Fixed roof storage tanks Combined tanks ≤ 252,000 gal. (6000 bbl.), individual ≤ 39,894 gal. (950 bbl.) VOCs, add-on controls Flares Maximum capacity heat input ≤ 250 MMBtu/hr, op. ≤ 10 MMBtu/hr Limits on VOCs, CO, NOx, SO2 Ancillary equipment/pipeline leaks VOCs 18 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
19.
Regulation of Air
Impacts OEPA Air General Permit, cont’d Facility-Wide Terms & Conditions state at Para. 3: “The permittee shall comply with any applicable requirements of 40 CFR Part 60 Subpart OOOO [a.k.a. the new U.S. EPA oil and gas NSPS] once it becomes rule.” Emissions Unit Terms & Conditions also reference compliance with 40 CFR Part 63, Subpart HH, and any amendments to those regulations (a.k.a. the new U.S. EPA oil and gas NESHAP for production operations) 19 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
20.
Regulation of Air
Impacts Stationary internal combustion engines Relatively recent federal MACT/GACT for toxic air emissions from existing stationary reciprocating internal combustion engines (RICE) Used in natural gas transmission, gathering, underground storage tanks and processing plants Codified at 40 CFR Part 63 Subpart ZZZZ August 2010 Final Rule: Spark-ignited RICE > 100 HP located at major sources and engines greater than 500 HP located at area (non-major) sources generally must comply with numerical CO or formaldehyde emissions standards (as surrogates) March 2010 Final Rule: Diesel compression-ignited RICE > 100 HP located at major sources and engines greater than 300 HP located at area sources must comply with numerical standards Under both rules, engines not otherwise covered by numeric limits & located at area sources are subject to certain maintenance practices New OEPA Air Permit specifically states that facilities are subject to these requirements but OEPA has no authority to enforce the GACT standards; therefore enforced by U.S. EPA 20 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
21.
Regulation of Air
Impacts Aggregation / Source Determination The grouping of two or more pollutant-emitting activities together as a single source of emissions 2007: Bill Wehrum (EPA Acting AA for Office of Air & Radiation) Proximity would be given particular emphasis in source determination 2009: Gina McCarthy (EPA AA for OAR) Withdrew Wehrum memo Consider equally: whether the activities are under common control; whether they are located on one or more contiguous or adjacent properties; whether belong to the same industrial grouping 21 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
22.
Regulation of Air
Impacts Aggregation / Source Determination, cont’d In practice, now a “dedicated interdependence” standard? EPA Region 5, re Summit Petroleum’s Mt. Pleasant, MI sour gas wells, sweetening plant and associated flares Single source found Analyzed “nature of the relationship between the facilities and the degree of interdependence between them in determining whether multiple non-contiguous emissions points should be considered a single source” Appealed to 6th Circuit; oral argument April 17, 2012 EPA Region 8, re BP Florida River compressor facility in Durango, CO Not a single source Wells at issue did not have “dedicated interrelatedness” EAB appeal by WildEarth Guardians; dismissed March 15, 2012 (settled in exchange for “pilot program”) CO re Kerr-McGee/Anadarko Title V renewal for Frederick Compressor Station Long disagreement between CO & EPA February 2011, EPA agreed not single source – “did not have a unique or dedicated interdependent relationship and were not proximate and therefore were not contiguous and adjacent” Appealed to 10th Circuit by WildEarth Guardians; settled with BP case As midstream operations pick up in Ohio, issue likely to be encountered more 22 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
23.
Regulation of Air
Impacts Other air issues: Ozone NAAQS Oil and gas activities have been blamed for winter-time exceedances of existing ozone standards (most recently set in 2008, at 75 ppb) Last set in 2008 at 75 ppb January 2010: Proposal to change to 60 to 70 ppb Sept. 2011: Pres. Obama announced would not be changing it after all Stay tuned: Regular 5-year review due in 2013 GHG Mandatory Reporting Petroleum and natural gas facilities that emit 25,000 tpy CO2-e to report (for 2011) certain GHG emissions by September 28, 2012 Ohio fugitive dust rules still apply (e.g., roadways) 23 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
24.
Regulation of Water
Impacts Source: http://www.epa.gov/hfstudy/ProgressUpdate02_2012.pdf 24 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
25.
Regulation of Water
Impacts NPDES Exemption, Water Quality Standards: Section 402 of the Clean Water Act ordinarily requires a “National Pollutant Discharge Elimination System” permit in order for a point sources (a discrete conveyance) to discharge pollutants into waters of the United States But the Energy Policy Act of 2005 added an exemption for oil and gas construction activities: (l)(2) Stormwater runoff from oil, gas, and mining operations The Administrator shall not require a permit under this section, nor shall the Administrator directly or indirectly require any State to require a permit, for discharges of stormwater runoff from mining operations or oil and gas exploration, production, processing, or treatment operations or transmission facilities, composed entirely of flows which are from conveyances or systems of conveyances (including but not limited to pipes, conduits, ditches, and channels) used for collecting and conveying precipitation runoff and which are not contaminated by contact with, or do not come into contact with, any overburden, raw material, intermediate products, finished product, byproduct, or waste products located on the site of such operations. 25 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
26.
Regulation of Water
Impacts NPDES Exemption, Water Quality Standards (cont’d): Ohio follows this exemption: OAC 3745-39-04(A)(2): The director shall not require a permit for discharges of storm water runoff from the following: (b) All field activities or operations associated with oil and gas exploration, production, processing, or treatment operations or transmission facilities, including activities necessary to prepare a site for drilling and for the movement and placement of drilling equipment, whether or not such field activities or operations may be considered to be construction activities, except in accordance with paragraph (C)(1)(c) of this rule. Discharges of sediment from construction activities associated with oil and gas exploration, production, processing, or treatment operations or transmission facilities are not subject to the provisions of paragraph (C)(1)(c)(iii) of this rule. 26 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
27.
Regulation of Water
Impacts NPDES Exemption, Water Quality Standards (cont’d): However . . . OEPA encourages operators to implement Best Management Practices to minimize discharges of pollutants (comment to OAC 3745-39-04(A)(2)(b)) And the exemption goes away if the facility: Has had a discharge of storm water resulting in the discharge of a reportable quantity of certain hazardous substances or oil OR Contributes to the violation of a water quality standard (OAC 3745-39-04(C)(1)(c)) 27 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
28.
Regulation of Water
Impacts NPDES Exemption, Water Quality Standards (cont’d): But…the Ohio Water Quality Standards are in a state of flux: December 28, 2011: OEPA proposed revised WQS (rule package had first been introduced in February 2006) Issued mere days before “Common Sense Initiative” was to take effect February 1, 2012: OEPA withdrew proposal 28 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
29.
Regulation of Water
Impacts Dredge & Fill Permits (Wetlands/Streams) U.S. Army COE 404 Permit + State CWA 401 Water Quality Certification Dec. 14, 2011: OEPA issued draft Section 401 Water Quality Certification General Permit Would regulate discharge of dredged or fill materials into waters of the state associated with oil and gas drilling activities Drilling pad construction, reserve/mud pits, water storage ponds, transmission lines, access roads Impacts no greater than cumulative 0.5 acres of low-medium quality wetlands and 300 ft. streams 29 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
30.
Regulation of Water
Impacts Dredge & Fill Permits (Wetlands/Streams), cont’d: February 21, 2012 Federal Register Notice: U.S. Army COE reissued most of existing nationwide 404 permits Nationwide Permit 39 (“Commercial and Institutional Developments”) now covers “the construction of pads for oil and gas wells” District engineer may add conditions to require the removal of the pads and restoration of site once extraction oeprations have ceased and wells no longer used Effective March 19, 2012 30 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
31.
Regulation of Water
Impacts Dredge & Fill Permits (Wetlands/Streams), cont’d: Fate of OEPA Section 401 Water Quality Certification GP in light of N.P. 39: no longer needed (but revisit?) And the ever-murky backdrop: Just what is a “water of the U.S.”? Rapanos v. U.S. / Carabell v. U.S. June 2007: EPA/COE Legal Memorandum/guidance issued December 2008: EPA/COE Guidance issued April 27, 2011: EPA/COE Draft Guidance issued (230,000 comments received!) February 2012: EPA/COE Guidance submitted to OMB Lesson: If in doubt, avoid if you can! 31 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
32.
Regulation of Water
Impacts Other pending water issues: Great Lakes Compact between 8 states & 2 Canadian provinces regarding use of Great Lakes Basin water supply December 2005 agreement; ratified in 2008 Ohio implementing legislation still needed… July 15, 2011: H.B. 231 vetoed Kasich: “lacks clear standards for conservation and withdrawals and does not allow for sufficient evaluation and monitoring of withdrawals or storage” March 7, 2012: H.B. 473 introduced Would regulate withdrawals and consumptive use Wetland mitigation: Feb. 9, 2012: Ohio S.B. 294 introduced In lieu fee program Other water protections? S.B. 315 (introduced March 22, 2012) 32 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
33.
Regulation of Water
Impacts Other pending water issues, cont’d: U.S. EPA’s study of Pavillion, WY gas field Dec. 2011 draft report March 8, 2012: announced additional studies Dimock, PA testing (latest results issued April 6th) Larger U.S. EPA study of impacts on drinking water (per Congressional Appropriations Conf. Committee’s FY 2010 Budget Report): November 2011 Final Plan: EPA's Study of Hydraulic Fracturing and Its Potential Impact on Drinking Water Resources Additional info available at http://www.epa.gov/hfstudy/ Oct. 2011 announcement: U.S. EPA to develop Effluent Limit Guidelines for shale extraction wastewater (proposed rule expect in 2014) April 13, 2012 Executive Order creating Interagency Working Group 33 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
34.
Questions? Mary
Ann Poirier Dayton, OH Office ^ 937.449.2809 maryann.poirier @dinsmore.com 34 © 2012 DINSMORE & SHOHL | LEGAL COUNSEL | www.dinsmore.com
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