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Tricks & Traps on Contaminated Sites
Dianne Saxe, Ph.D. in Law
Saxe Law Office November 18, 2009
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November 18, 2009 Dianne Saxe 2
Overview How clean is clean?
Changing standards Transition Risk Assessment Offsite plumes
Who’s responsible? What can you do with a contaminated site?
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November 18, 2009 Dianne Saxe 3
How Clean is “Clean”? Background Generic
Potable / Non-Potable Land Use Stratified
Risk Assessment
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November 18, 2009 Dianne Saxe 4
Generic Soil, Sediment, Water Potable / Non-Potable Land Use
Residential / Industrial / Agricultural / etc. Stratified
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November 18, 2009 Dianne Saxe 5
1: Background / Sensitive 2 / 3: Full Depth, potable / non-potable 4 / 5: Stratified, potable / non-potable6: Shallow soil
Tables
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November 18, 2009 Dianne Saxe 6
Which Generic? Guideline for Use at Contaminated Sites in
Ontario (1994 to 2004) Reg. 153/04: Soil, Ground Water and
Sediment Standards for Use Under Part XV.1 of the Environmental Protection Act, March 9, 2004
2008 draft standards
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November 18, 2009 Dianne Saxe 7
How do you know if it’s clean? Record of Site Condition
Date? Phase I / II? Environmental Site Registry
Certificate of Property Use Other documents?
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November 18, 2009 Dianne Saxe 8
Will it stay clean? When the standards change? When contaminants degrade? When contaminants migrate?
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November 18, 2009 Dianne Saxe
Changing standards Current generic standards:
obsolete science incoherent
New standards usually more stringent
e.g. 1900 to 44 ppb more parameters
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November 18, 2009 Dianne Saxe
Changing standards How soon? Existing cleanups- file now? MOE transition period Will lenders wait? Who will trust an old RSC?
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November 18, 2009 Dianne Saxe
If you can’t meet generic Exemption? Live with it Change landuse Piecrust Risk assessment CBRA
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November 18, 2009 Dianne Saxe 12
Risk it away For deep pockets with lots of time Impact on mortgage ability How to enforce CPU conditions? Who maintains documents / FA if
subdivided?
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November 18, 2009 Dianne Saxe 13
Steps in risk assessment Hazard identification Dose-response assessment Exposure assessment Risk characterization Risk management plan Certificate of Property Use
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November 18, 2009 Dianne Saxe 14
Getting RA approved MOE review / acceptance Slow Unpredictable Expensive Financial Assurance
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November 18, 2009 Dianne Saxe
Tier 2 RA Cookie-cutter RA Less discretion, less delay May partially offset new standards Available during transition?
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November 18, 2009 Dianne Saxe 16
Are MOE standards enough? Tridan v. Shell Impact on value What is “pristine”?
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November 18, 2009 Dianne Saxe 17
If it’s not clean Hazardous to occupants / neighbours? S. 14 Cleanup obligations (spills) Change of land use Building permits Impact on value
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November 18, 2009 Dianne Saxe 18
Overview How clean is “clean”? Who’s responsible?
Orders Protections from orders
What can you do with a contaminated site?
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November 18, 2009 Dianne Saxe 19
MOE Orders Environmental Protection Act
Also OWRA, TSSA, CWA, SDWA, etc. Stop orders, Control orders Preventive orders, Cleanup orders Orders to Pay
MOE derives most of its formal authority from EPA, OWRAMOE can order you to clean up – 4 types of orders – stop orders, control orders, preventive orders, cleanup ordersMunicipalities responsible for land use planning, drinking water, household waste/sewage
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November 18, 2009 Dianne Saxe 20
Orders: Liability Bomb No fault No limitation period No cost limit No fairness limit Retrospectivity Uncontrolled MOE discretion
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November 18, 2009 Dianne Saxe 21
Who can be ordered? Owns or owned or has or had management
or control of an undertaking or property, s. 18, 97, 157.1
Has or had charge, management, control of source of contaminant, s. 7, 8, 14
Has or had charge and control of land, building or waste, s. 43
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November 18, 2009 Dianne Saxe 22
Anyone with “control” Past or present Includes non-polluters:
Owner, occupant Officers, directors Anyone in possession Receivers, trustees Individual / corporate
Control without possession?
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November 18, 2009 Dianne Saxe 23
Protection from Orders? Record of Site Condition (RSC) Bankruptcy and Insolvency Act Environmental Protection Act, protection
for fiduciaries S.168.23 to 168.26 Reg. 298/02
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October 2, 2009 OBA 24
Demolition & Recycling Defendants bought major PCB
contaminated site Breached OWRA orders to stop escape Dec. 08: $659,000 fine & president 4
months jail Appeal - Aug. 2009
Reduced fines to $519,000, upheld jail
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November 18, 2009 Dianne Saxe 25
Protection by RSC? No MOE signoff No protection during cleanup No protection against civil suits No protection against prosecution or EPs
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November 18, 2009 Dianne Saxe 26
Reopeners where Contaminant moves off-site RSC based on false / misleading
information Certificate of Property Use or s.18 risk
management order contravened Danger to health or safety
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November 18, 2009 Dianne Saxe 27
Other weaknesses of RSCs: The invalidators:
Change of use False information Migration across the property line
What if the property line moves? Improvements in detection technology?
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November 18, 2009 Dianne Saxe 28
What isn’t control? S. 168.26 EPA Some commercially reasonable acts of secured
creditor ≠ control: Investigate conditions Reduce contamination NOT Secure site Pay taxes, insurance Respond to emergencies
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November 18, 2009 Dianne Saxe 29
Overview How clean is “clean”? Who’s responsible? What can you do with a contaminated
site
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November 18, 2009 Dianne Saxe 30
What can you do with it? Clean it Abandon it Sell it
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November 18, 2009 Dianne Saxe 31
Clean it? Dig and dump Land farming In situ:
Chemical oxidation Bioremediation Air sparge, etc.
Risk Assessment
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November 18, 2009 Dianne Saxe 32
Not everything can be cleaned Engineers are optimists
Cost Time Result
Lawyers must be pessimists
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November 18, 2009 Dianne Saxe 33
Contaminants are different The big three:
Petroleum Heavy metals Chlorinated solvents
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November 18, 2009 Dianne Saxe 34
…So are Site Characteristics Geography Hydrogeology
Soil type Sand, clay
Bedrock Water
Surface, groundwater, aquifers
MOE derives most of its formal authority from EPA, OWRAMOE can order you to clean up – 4 types of orders – stop orders, control orders, preventive orders, cleanup ordersMunicipalities responsible for land use planning, drinking water, household waste/sewage
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November 18, 2009 Dianne Saxe 35
Abandon it? Note short deadlines in BIA, EPA Don’t miss the deadline
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November 18, 2009 Dianne Saxe 36
Sell it? Agreement of Purchase and Sale
Disclosure Warranty / reliance Deceit Latent / Patent Defect
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November 18, 2009 Dianne Saxe 37
Agreement of Purchase & Sale Identify Risks
ESA, inspection Allocate Known Risks Allocate Unknown Risks
Insurance? Escrow? Price?
(From Envirolaw newsletter) In Neste Chemicals v. Reichold, a misunderstanding over an agreement of purchase and sale cost Neste $8 million. Neste had purchased a chemical plant from Reichold, knowing there was some buried waste and that the site had not been fully investigated. Reichold agreed to remove buried drums in one location and to pay other cleanup costs “to the extent required by law”. Neste thought this meant that Reichold would pay for all cleanups required by the Quebec environment ministry. It was wrong. The site turned out to have hundreds of buried drums and other dangerous wastes that Neste spent $10,000,000 cleaning up. The court held that Reichold only had to remove drums in the one specified location plus do the minimum needed to keep contamination from migrating off-site. Even though Neste couldn’t expand its plant without remediating the soil and groundwater, this cleanup was not “required by law”.
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November 18, 2009 Dianne Saxe 38
Vendor must Truthfully answer questions Obligation to disclose?
latent defects buried tanks danger v. value
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November 18, 2009 Dianne Saxe 39
Will it come back to bite you? Will the cleanup work? Will the buyer be solvent? Will more contamination be found? Did anything go wrong on your watch?
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November 18, 2009 Dianne Saxe 40
The Consultant Qualified Person? Does she know what she’s doing? Insurance
What does it cover? When does coverage expire? Are there current / future claims against her? Claims-made policies
Proving negligence
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November 18, 2009 Dianne Saxe 41
The retainer letter Limitations on liability Legal right to rely on the report Quality of the work / benchmarks Changes in scope
Trusting a Consultant
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November 18, 2009 Dianne Saxe 42
Conclusions Contaminated sites still risky, technical,
cost extra time and money Rules and numbers keep changing Some protection for very careful fiduciaries Sometimes they’re worth it.
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Questions?
SAXE LAW OFFICE248 Russell Hill Road
Toronto, Ontario M4V 2T2
Tel: 416 - 962 - 5882Fax: 416 - 962 - 8817
Email: [email protected]