Testimony of U.S. Senator Richard J. Durbin Before the
Subcommittee on Superfund, Toxics, Risk and Waste Management of the Senate
Environment and Public Works Committee July 31, 2002
Thank
you, Senator Boxer, for inviting me to testify before the Subcommittee on
Superfund, Toxics, Risk and Waste Management of the Senate Environment and
Public Works Committee on the important topic of the Superfund program. I also
want to thank Senator Jeffords, and the members of this Subcommittee, for your
leadership on the many critical environmental protection issues we face.
Finally, I want to applaud Senators Boxer and Chafee for introducing
legislation to reinstate the Superfund "polluter pays" taxes. I am
proud to be a cosponsor.
The
Inspector General of the Environmental Protection Agency (EPA) reported on June
24 that the agency has slowed or stopped funding at 33 Superfund sites in 18
states. One of them, the Jennison Wright Corporation in Granite City, Illinois,
is not receiving the funding needed to bring the site to the construction
complete phase. For years we have seen the Superfund Trust Fund dwindle, as
some in Congress, and now in the Administration, has resisted reauthorizing the
"polluter pays" taxes. Today's testimony will demonstrate the high
costs of this abdication of responsibility.
Superfund
sites are cleaned up in one of three ways: 1) the potentially responsible
parties (PRPs) enter into a Consent Decree with EPA to execute and pay for the
clean up, or remedial action; 2) the EPA cleans up the site and recoups the
cost from PRPs through legal action; or 3) the EPA pays for and cleans up the
site when PRPs are bankrupt, unidentifiable, or cannot be forced to pay for the
site, despite enforcement or legal actions EPA has taken. The Superfund Trust
Fund pays for the clean ups in the third category, making these sites the most
threatened when this program is underfunded.
Three
dedicated taxes historically provided the majority of the Trust Fund's income,
but expired in 1995. By the end of FY 2003, the Fund's balance will have dwindled to $28 million. Every year after 1995, the Clinton
Administration requested that Congress reauthorize Superfund taxes as part of
its budget, and Congress declined. The Bush Administration has not included
such a request in its FY 2003 budget submission or its FY 2002 submission. As
time passes, taxpayers are paying a larger portion of the clean up than
corporations. From 1.991-1995, the portion of Superfund spending coming from
general revenues averaged 17 percent; in fiscal years 20002002, it was 50
percent.
The
Boxer-Chafee would reinstate the Superfund "polluter pays" taxes.
However, the Administration does not support reinstating these taxes. The
Administration prefers that all taxpayers have the burden of paying for cleanup.
In a recent editorial, EPA Administrator Christine Todd Whitman asserts,
"Financing the cleanup of these orphan sites, as they are called, comes
from the Superfund trust fund and from Congress's general revenues." The
reality is that general revenues do not belong to Congress. These revenues are
taxpayers' money. Also, while it is true that some funds from general revenues
have historically contributed to orphan site cleanup, taxpayers are paying a
significantly larger portion of the clean up than corporations than they have
in the past.
In
response to a letter I sent to Administrator Whitman, she has told me that we
should not worry that the Superfund taxes have expired, and that polluters no
longer have to pay their fair share of the clean up. In a letter she sent to me
on June 28, she noted "Congress has supplemented the Superfund
appropriation by appropriating dollars from general revenues. I am confident
that Congress and the Administration will continue to work together to provide
adequate funding for the Superfund program." She also told me that they do
not yet have a clear understanding "as to whether project schedules in
future years will be impacted by competing funding needs." There seem to
be some major management issues in this program that need to be examined.
Illinois
In
Illinois there are 39 Superfund sites. Only 19 have reached the milestone of
"construction completion," where all the final remedies for the sites
are fully in place, with operation and maintenance remaining, and, in some cases,
an ongoing pump and treat system to restore the aquifer underlying the site to
drinking water quality.
Recently
I visited one of these sites, the Outboard Marine Corporation (OMC) in
Waukegan, Illinois. I saw firsthand the environmental damage of that site, and
how it is impacting the local community, especially its efforts to restore the
beach of Lake Michigan and proceed with important economic development.
Hazardous
wastes at the OMC site include PCBs and Volatile Organic Compounds (VOCs). From
approximately 1948 to 1971, OMC purchased an estimated 8 million gallons of
hydraulic fluid which contained PCBs for die casting of outboard
marine/recreational engines. PCBs were discharged through floor drains into a
tributary of Lake Michigan and were ultimately discharged to Waukegan Harbor.
As a result, 700,000 pounds of PCBs were estimated to be present on OMC
property soils and 300,000 pounds of PCBs in the soils and sediments of
Waukegan Harbor.
In
the early 1900's a wood-treating plant operated on the site, followed by a
manufactured gas plant in the 1920's and a coke oven gas plant in the 1940's.
Soil and grounwater contaminants include coal tar, which contains many
polynuclear aromatic hydrocarbons (PNAs), phenols and volatile organic
compounds (VOCs), and ammonia (byproducts of the manufactured gas and coke
operations). Other contaminants, primarily in groundwater, include arsenic,
cyanide and heavy metals.
The
plant was purchased and disassembled by OMC in approximately 1972. Between 1973
and 1989, OMC used the site for fire training. Other more current uses include
waste oil storage, parking, stockpiling of sand from a dredging operation,and
testing of snowmobiles. OMC declared bankruptcy in December 2000, complicating
site cleanup actions.
PCBs
have contaminated on-site soil and sediments in Lake Michigan. The Waukegan
Harbor is identified as an Area of Concern by the Great Lakes Water Quality
Agreement between the United States and Canada due to its persistent, harmful
sediment problem. Although the PCB problem has begun to be dealt with,
groundwater and soils are still contaminated with PNAs, ammonia, phenol and
arsenic as a result of activities that occurred at the former Gas and Coke
Plant.
The
residents of Waukegan, Illinois, and I want to know: what is taking so long?
Why isn't EPA cleaning up this site?
Unfortunately,
cleanups in Illinois overall are slowing down. In my correspondence with the
EPA, Administrator Whitman delivered a saddening piece of news. Whereas the
USEPA had earlier projected that the Byron Salvage Yard, a Superfund site in
Illinois, would reach the construction complete phase in fiscal year 2002, they
are now projecting that it will not be until fiscal year 2003. That means only
two sites will have reached the construction complete phase this fiscal year in
Illinois, and one of those sites was carried over from last year. In addition,
only one site, A & F Materials Reclaiming, is projected to be deleted from
the list this year-meaning it is the only site in Illinois that will be totally
cleaned up.
The EPA's Inspector General also reveals that the
Jennison Wright Corporation site in Granite City, Illinois is not being cleaned
up, even though it is not one of the "megasites" that EPA claims take
longer to complete. Although the officials
at the EPA requested $12.5 million for clean-up of the Jennison Wright
Corporation site in Granite City, Illinois, this year, only $570,000 has been
allocated, meaning that the work has been put off'. This Fund-lead Superfund
site has groundwater, surface soil, and subsurface soil contamination,
including arsenic, benzene, manganese, naphthalene, beryllium, chromium, and
other contaminants. Surface waters are contaminated with creosote,
pentachlorophenol, and other related compounds.
The
Jennison-Wright Corporation site is a 20-acre, bankrupt railroad. tie-treating
facility in Granite City, which has a population of 33,000. The site is located
in a low income, mixed industrial/residential neighborhood. Operations as a
railroad tie treatment facility began prior to 1921 and continued until 1989.
After operations ceased, wastes were left at the site in a railroad tank car, a
buried railroad tank car, two above-ground storage tanks, and two lagoons.
Neighboring residents may be affected through direct contact or ingestion of
contaminants emanating from the site. Although the Illinois Environmental
Protection Agency performed work on this site as early as 1992, it was not
proposed to the list until October 1995, and it became final in June 1996.
Despite being listed for six years and being known as a contaminated site for
10 years, it has not reached the construction complete phase. It seems that
work is ready to proceed there, except for lack of funding. The appropriate
clean-tip for this site should include soil excavation, off-site disposal, and
a groundwater pump and treat system.
Is
the Jennison Wright Corporation site not being funded due to lack of money in
the Superfund Trust Fund? If so, why are we encountering so much resistance to
reviving this important fund? Senators Boxer and Chafee, and members of this
Subcommittee, I hope you are able to get to the bottom of some of the pressing
questions raised by my testimony and that of my colleagues in the Senate. We
need answers before any further damage to our communities and to the public
health is done.