Regulation of Fertilizers: Ammonium Nitrate and Anhydrous Ammonia

Congressional research reportJul 31, 2013

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Regulation of Fertilizers: Ammonium Nitrate

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Regulation of Fertilizers: Ammonium Nitrate and Anhydrous Ammonia

Summary

The explosion on April 17, 2013, at the West Fertilizer Company fertilizer distribution facility in

West, TX, has led to questions about the oversight and regulation of agricultural fertilizer.

Facilities holding chemicals must comply with regulations attempting to ensure occupational

safety, environmental protection, and homeland security. In addition to federal regulation

requiring reporting and planning for ammonium nitrate and anhydrous ammonia, most state and

some local governments have laws and regulations regarding the handling of either or both of

these chemicals.

The West Fertilizer Company possessed a variety of agricultural chemicals at its retail facility, but

policy interest has focused on two chemicals: ammonium nitrate and anhydrous ammonia.

Ammonium nitrate is a solid that can be used as a fertilizer, a use that generally occurs without

incident. In combination with a fuel source and certain conditions, such as added heat or shock,

confinement, or contamination, ammonium nitrate can pose an explosion hazard. Such accidents

have rarely occurred, but have historically had high impacts. For example, the ammonium nitrate

explosion in 1947 in Texas City, TX, where two ships carrying ammonium nitrate coated in wax

and stored in paper bags caught fire and exploded, destroyed the entire dock area, including

numerous oil tanks, dwellings, and business buildings. The bomb used in 1995 to attack the

Murrah Federal Building in Oklahoma City, OK, contained ammonium nitrate as a component of

its explosives.

Anhydrous ammonia has a variety of uses, including as an agricultural fertilizer. Many

agricultural retailers store and use anhydrous ammonia. In contrast with ammonium nitrate,

anhydrous ammonia is a gas more generally viewed as a threat from its inhalation toxicity. It is

regulated to prevent release of the chemical into the atmosphere where it might travel as a cloud

and impact workers and the surrounding environment.

Various federal, state, and local agencies collect mission-relevant information about chemical

holdings. The West facility reportedly had not complied with all relevant and applicable

regulatory requirements. For example, the facility reportedly had not contacted the Department of

Homeland Security (DHS), which should have received information about any ammonium nitrate

or anhydrous ammonia stored at the facility. The extent to which agencies shared relevant

information about chemical holdings in order to enable effective regulatory oversight is still

unresolved.

As congressional policymakers consider the ramifications of the explosion in West, TX, they may

face several policy issues. These policy issues include the:

•

challenges arising from relying on reporting of chemical inventories by regulated

facilities;

•

potential for omission and duplication in existing regulatory reporting;

•

long intervals between inspections at many such facilities;

•

ability of federal, state, and local government agencies to share information

effectively among themselves; and

•

public and first-responder access to regulatory information.

Congressional Research Service

Regulation of Fertilizers: Ammonium Nitrate and Anhydrous Ammonia

Contents

Introduction...................................................................................................................................... 1

Ammonium Nitrate .......................................................................................................................... 2

Regulation by Bureau of Alcohol, Tobacco, Firearms and Explosives ..................................... 3

Regulation by Department of Homeland Security..................................................................... 3

Maritime Transportation Security Act ................................................................................. 3

Chemical Facility Anti-Terrorism Standards ....................................................................... 4

Ammonium Nitrate Proposed Rule ..................................................................................... 6

Regulation by Occupational Safety and Health Administration ................................................ 7

Standard 1910.109: “Explosives and Blasting Agents” ...................................................... 8

Standard 1910.1200: “Hazard Communication” ................................................................. 8

Standard 1910.119: “Process Safety Management of Highly

Hazardous Chemicals” ..................................................................................................... 8

Regulation by U.S. Environmental Protection Agency ............................................................. 9

Emergency Planning and Community Right-to-Know Act ................................................. 9

Clean Air Act, Section 112(r) ............................................................................................ 10

Anhydrous Ammonia ..................................................................................................................... 10

Regulation by Department of Homeland Security................................................................... 11

Maritime Transportation Security Act ............................................................................... 11

Chemical Facility Anti-Terrorism Standards ..................................................................... 11

Regulation by Occupational Safety and Health Administration .............................................. 12

Standard 1910.111: “Storage and Handling of Anhydrous Ammonia” ............................. 12

Standard 1910.119: “Process Safety Management of Highly

Hazardous Chemicals” ................................................................................................... 13

Standard 1910.1000: “Air Contaminants”......................................................................... 14

Regulation by Environmental Protection Agency ................................................................... 15

Emergency Planning and Community Right-to-Know Act ............................................... 15

Clean Air Act, Section 112(r) ............................................................................................ 16

Policy Issues .................................................................................................................................. 16

Challenges from Reporting by Facilities ................................................................................. 16

Lack of Harmonized Reporting ............................................................................................... 17

Inspection Rate ........................................................................................................................ 17

Ability of Government Agencies to Share Information Effectively ........................................ 17

Public Access to Information................................................................................................... 18

Figures

Figure 1. Overview of CFATS Regulatory Process ......................................................................... 5

Contacts

Author Contact Information........................................................................................................... 18

Congressional Research Service

Regulation of Fertilizers: Ammonium Nitrate and Anhydrous Ammonia

Introduction

The explosion on April 17, 2013, at the West Fertilizer Company fertilizer distribution facility in

West, TX, has led to questions about the oversight and regulation of agricultural fertilizer.1

Congressional policymakers have expressed concern and requested information about

coordination among federal regulatory agencies and the efficacy of agency regulations.2 Different

federal agencies apply a variety of regulatory structures to these chemicals. These regulations

meet different policy rationales, goals, and purposes. Some attempt to ensure occupational safety,

others environmental protection, and still others security. As a consequence, various federal, state,

and local agencies collect mission-relevant information about chemical holdings, with some

entities gaining a narrower, or broader, understanding of a facility’s chemical inventories.

The West Fertilizer Company possessed a variety of agricultural chemicals at its retail facility,3

but policy interest has focused on two chemicals: ammonium nitrate and anhydrous ammonia. In

2012, the West Fertilizer Company had reported to the U.S. Environmental Protection Agency

(EPA) and the state of Texas the presence of 110,000 pounds of anhydrous ammonia and 270 tons

of ammonium nitrate4, 5 and had complied with certain provisions of the Clean Air Act,6 but the

West facility may not have complied with all reporting requirements. For example, the facility

had not contacted the Department of Homeland Security (DHS), which should have received

information about ammonium nitrate or anhydrous ammonia stored at the facility.7 The DHS

notes that the West Fertilizer Company facility might not have qualified as a regulated high-risk

facility even if it had reported its chemical holdings.8

For example, see Manny Fernandez and Steven Greenhouse, “Texas Fertilizer Plant Fell through Regulatory Cracks,”

New York Times, April 24, 2013.

For example, see Representative Michael T. McCaul, Chairman, Committee on Homeland Security; Representative

Fred Upton, Chairman, Committee on Energy and Commerce; and Representative John Carter, Chairman, Homeland

Security Appropriations Subcommittee, Letter to Janet Napolitano, Secretary, U.S. Department of Homeland Security,

July 22, 2013; Senator Tom Carper, Chairman, Committee on Homeland Security and Governmental Affairs, Letter to

Janet Napolitano, Secretary, and Suzanne Spaulding, Acting Under Secretary, National Protection and Programs, U.S.

Department of Homeland Security, June 28, 2013; Representative Henry A. Waxman, Ranking Member, Committee on

Energy and Commerce, and Representative Bennie G. Thompson, Ranking Member, Committee on Homeland

Security, Letter to President Barack Obama, May 2, 2013; Senator Barbara Boxer, Chairman, Committee on

Environment and Public Works, Letter to Bob Perciasepe, Acting Administrator, U.S. Environmental Protection

Agency, April 30, 2013; and Representative George Miller, Senior Democratic Member, Committee on Education and

the Workforce, and Representative Joe Courtney, Senior Democratic Member, Subcommittee on Workforce

Protections, Committee on Education and the Workforce, Letter to Gene L. Dodaro, Comptroller General, U.S.

Government Accountability Office, April 25, 2013.

Adair Grain, Inc. DBA West Fertilizer Co., Tier II, Emergency and Hazardous Chemical Inventory, 2012,

http://op.bna.com/env.nsf/id/jsun-96vvcm/$File/Adair%20Grain%20Inc%202012%20Tier%202%20Report.pdf.

It is unclear from the Tier II report whether this reflects maximum amounts stored on site or some other value.

Investigators have estimated that approximately 150 tons of ammonium nitrate were present on the day of the explosion

(Randy Lee Loftis, “Analysis: West Fertilizer Report Details Sequence of a Catastrophe,” Dallas Morning News, May

16, 2013).

Reportedly, 28 to 34 tons of ammonium nitrate, only a portion of the amount present, exploded (Randy Lee Loftis,

“Analysis: West Fertilizer Report Details Sequence of a Catastrophe,” Dallas Morning News, May 16, 2013).

Right-to-Know Net, West Fertilizer Co. Risk Management Plan, June 30, 2011, http://data.rtknet.org/rmp/rmp.php?

facility_id=100000135597&database=rmp&detail=3&datype=T.

Personal communication between DHS and CRS staff, April 23, 2013.

Department of Homeland Security, DHS Responses to Rep. McCaul and Rep. Meehan’s May 2, 2013 Letter

Regarding the Chemical Facility Anti-Terrorism Standards (CFATS) Program, June 2013.

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Regulation of Fertilizers: Ammonium Nitrate and Anhydrous Ammonia

In addition to federal regulation requiring reporting and planning for ammonium nitrate and

anhydrous ammonia, most state and some local governments have laws and regulations regarding

the handling of either or both of these chemicals.9 States regulate worker and environmental

protection, product efficacy and safety, chemical sales and storage, and security. In addition,

states may enforce standards such building, plumbing, mechanical, electrical, and fire codes.

Local zoning laws may dictate placement of a facility within a community. Many states require

registration to track the sellers and sales of fertilizer.10

This report will focus on some of the federal regulatory programs overseeing storage of

ammonium nitrate and anhydrous ammonia by retailers. The report will not address federal

regulation of material in transport.11 It will discuss federal occupational safety, environmental,

and security statutes and regulations applicable to each chemical. Select policy issues regarding

these federal regulatory programs will be highlighted. It does not address various law

enforcement activities related to tracking of anhydrous ammonia used for illegal drug synthesis

(e.g., methamphetamine).

Ammonium Nitrate

Domestic production capacity of ammonium nitrate is approximately 7 million tons,12 and it is

produced worldwide. The vast majority of ammonium nitrate use occurs without incident. Most

experts consider ammonium nitrate itself as a stable chemical with few handling restrictions, but,

in combination with a fuel source, it can pose an explosion hazard.13 Ammonium nitrate requires

certain conditions, such as added heat or shock, confinement, or contamination to explode.

Ammonium nitrate in combination with certain additives is widely used as a type of explosive

known as a blasting agent. Ammonium nitrate is also used as a fertilizer.

Ammonium nitrate is suspected as the source of the explosion at the West Fertilizer Company.14

Accidental explosions of ammonium nitrate have resulted in loss of lives and destruction of

property. These accidents have rarely occurred, but have had high impacts. For example, the

ammonium nitrate explosion in 1947 in Texas City, TX, where two ships carrying ammonium

nitrate coated in wax and stored in paper bags caught fire and exploded, destroyed the entire dock

area, including numerous oil tanks, dwellings, and business buildings.15 Because of this history,

The authors thank Jerry Yen, Intern, Congressional Research Service, for research assistance on state fertilizer

regulation.

The Association of American Plant Food Control Officials and the Fertilizer Institute have compiled a list of state

fertilizer laws and regulations. Association of American Plant Food Control Officials, “State Fertilizer Laws and

Regulations,” at http://www.aapfco.org/state_laws_regs.html and The Fertilizer Institute, “2012 Summary of State

Fertilizer Laws,” at http://www.tfi.org/node/507.

The U.S. Department of Transportation and the U.S. Coast Guard regulate the transportation of chemicals by land

and sea.

IFDC, North America Fertilizer Capacity, March 2013.

Environmental Protection Agency, Office of Solid Waste and Emergency Response, Chemical Emergency

Preparedness and Prevention Office, “Chemical Safety Alert: Explosion Hazard from Ammonium Nitrate,” EPA 550F-97-002d, December 1997.

No final determination of the root cause of the explosion of the West Fertilizer Company has been made. The

Chemical Safety Board has begun an investigation into the explosion. Chemical Safety Board, “Chemical Safety Board

Deploying to West Fertilizer Plant Accident,” Press Release, undated.

S. Olafson, “Texas City Just Blew Up,” Houston Chronicle, April 16, 1997.

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and its inherent characteristics, a variety of federal agencies have authority to regulate ammonium

nitrate, some of which has been delegated to state agencies.

Regulation by Bureau of Alcohol, Tobacco, Firearms and Explosives

The Bureau of Alcohol, Tobacco, Firearms and Explosives (ATF) of the Department of Justice

(DOJ) regulates ammonium-nitrate-based blasting agents, but it does not regulate ammonium

nitrate as fertilizer. The ATF has issued regulations regarding the necessary distance to be

maintained between ammonium nitrate and other explosive materials.16 The ATF and the fertilizer

industry have undertaken joint voluntary efforts to secure ammonium nitrate fertilizer,

predominantly through “know your customer” programs.17

Regulation by Department of Homeland Security

While often used for legitimate purposes, malicious actors might also use ammonium nitrate

fertilizer as part of an improvised explosive device. For example, the bombing of the Murrah

Federal Building in Oklahoma City, OK, used ammonium nitrate, along with other chemicals, as

the primary explosive material. The ease with which ammonium nitrate fertilizer can be

transformed into ammonium-nitrate-based blasting agent has led to increased scrutiny of its

storage and transfer in order to prevent misappropriation and misuse.

For this reason, the Department of Homeland Security (DHS) has multiple statutory authorities

under which it regulates ammonium nitrate for security purposes. In general, DHS authorities fall

into two categories: securing facilities containing ammonium nitrate and tracking the transfer of

ammonium nitrate.18

Since 2002, the U.S. Coast Guard (USCG) has regulated security at certain stationary facilities

adjacent to waterways under the authority of the Maritime Transportation Security Act (MTSA,

P.L. 107-295). In 2006, when Congress authorized DHS to regulate high-risk chemical facilities

for security purposes in P.L. 109-295 (Department of Homeland Security Appropriations Act,

2007), it exempted those facilities already regulated under MTSA.19 Congress also authorized

DHS to oversee the sale and transfer of ammonium nitrate in P.L. 110-161 (Consolidated

Appropriations Act, 2008).20

Maritime Transportation Security Act

The DHS, through the USCG, regulates security at facilities located adjacent to any waters subject

to U.S. jurisdiction. Note that this regulatory requirement is irrespective of the presence of

chemicals at the facility, but would capture any facility storing ammonium nitrate adjacent to

waterways. The USCG implemented MTSA through a series of regulations issued in October

27 C.F.R. §550.220.

See, for example, http://www.atf.gov/explosives/programs/ammonium-nitrate-security/index.html.

The U.S. Coast Guard also regulates transport of ammonium nitrate on waterways as a “certain dangerous cargo.”

Section 550, P.L. 109-295, Department of Homeland Security Appropriations Act, 2007.

Section 563, P.L. 110-161, Consolidated Appropriations Act, 2008.

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Regulation of Fertilizers: Ammonium Nitrate and Anhydrous Ammonia

2003.21 The MTSA requires the creation of an area security plan, assessment of security

vulnerabilities at the facility, and the creation of a facility security plan. The USCG creates the

area security plan. Either the USCG or the regulated facility performs a vulnerability assessment

of the regulated facility. Based on this vulnerability assessment, the facility must develop and

implement a security plan consistent with the broader USCG area maritime transportation

security plan. The facility must update this plan every five years, and the USCG inspects the

facility’s implementation of the plan.22

Chemical Facility Anti-Terrorism Standards

In 2007, DHS issued an interim final rule establishing the Chemical Facility Anti-Terrorism

Standards (CFATS), the regulatory program by which it implements its chemical facility security

authority. Under the CFATS interim final rule, the Secretary of Homeland Security determines

which chemical facilities must meet regulatory security requirements, based on the degree of risk

posed by each facility. The DHS lists 322 “chemicals of interest” and screening threshold

quantities for each chemical to determine the need to comply with CFATS.23 The DHS considers

each chemical in the context of three threats: release; theft or diversion; and sabotage and

contamination. The regulation includes as chemicals of interest both pure ammonium nitrate and

ammonium nitrate with more than 0.2% combustible substances, including any organic substance

calculated as carbon, to the exclusion of any other added substance.24 It identifies them as theft or

diversion and release threats respectively.

The screening threshold quantity differs depending on the ammonium nitrate. Facilities

possessing at least 5,000 pounds (400 pounds if packaged for transportation) of ammonium

nitrate with more than 0.2% combustible substances are potentially high-risk facilities and must

participate in the CFATS regulations. Facilities possessing at least 2,000 pounds of transportable

fertilizer mixture containing at least 33% ammonium nitrate are potentially high-risk facilities and

must participate in the CFATS regulations. According to DHS, “This [screening threshold

quantity] is geared toward ensuring that DHS secures [ammonium nitrate] inventories at major

manufacturing and distribution facilities, as opposed to individual farmers involved mainly in the

application of [ammonium nitrate].”25

Chemical facilities with greater than specified quantities of chemicals of interest must submit

information to DHS. This information-gathering process is called the “Top-Screen.” It enables

DHS to determine each facility’s risk status based on the information received. If a facility comes

into possession of any of the chemicals of interest at the corresponding quantities, it must

complete and submit a Top-Screen within 60 calendar days.26 Also, the CFATS rule states that

DHS may contact and instruct specific facilities to complete and submit Top-Screen information.

Facilities that DHS deems high risk must meet CFATS requirements, which include performing a

33 C.F.R. §105.

Vessels have similar requirements to facilities under the MTSA.

72 Federal Register 65396-65435 (November 20, 2007).

Note that DHS does not regulate combinations of ammonium nitrate/fuel oil (ANFO) under the CFATS program

(Department of Homeland Security, CFATS Knowledge Center FAQ Number 1383, May 22, 2009).

72 Federal Register 65396-65435 (November 20, 2007) at 65407.

72 Federal Register 17688-17745 (April 9, 2007) at 17731.

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security vulnerability assessment, developing a site security plan, implementing the security plan,

and then being inspected by DHS for compliance. See Figure 1.

Figure 1. Overview of CFATS Regulatory Process

(July 2012)

Source: Office of Infrastructure Protection, National Protection and Programs Directorate, Department of

Homeland Security, Chemical Facility Anti-Terrorism Standards (CFATS) and Ammonium Nitrate Security Regulation

Update, July 31, 2012.

Notes: COI = Chemical of Interest; STQ = Screening Threshold Quantity; CVI = Chemical-terrorism

Vulnerability Information; CSAT = Chemical Security Assessment Tool; SVA = Security Vulnerability Assessment;

ASP = Alternative Security Program; SSP = Site Security Plan.

Several types of facilities are exempt from the CFATS regulation. The statute exempts any facility

that is: defined as a water system or wastewater treatment works; owned or operated by the

Department of Defense or Department of Energy; regulated by the Nuclear Regulatory

Commission (NRC); or regulated under MTSA. Many of these types of facilities comply with

other security requirements. The DHS has implemented a regulatory extension for agricultural

chemical users, though not distributors or retailers.27 Indeed, DHS stated in the CFATS interim

final rule that “if a retail establishment does exceed any of these [screening threshold quantities],

the retail establishment will have to complete the Top-Screen.”28 The CFATS rule does not,

however, impose any limitations on the sale or transfer of ammonium nitrate.

See Section 550(a), P.L. 109-295, Department of Homeland Security Appropriations Act, 2007, and 73 Federal

72 Federal Register 17688-17745 (April 9, 2007) at 17697.

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Ammonium Nitrate Proposed Rule

In 2007, Congress enacted Section 563 of P.L. 110-161 (Secure Handling of Ammonium Nitrate),

authorizing DHS to “regulate the sale and transfer of ammonium nitrate by an ammonium nitrate

facility ... to prevent the misappropriation or use of ammonium nitrate in an act of terrorism.”29

The statute further required that DHS develop regulations wherein, among other responsibilities:

•

sellers and purchasers of ammonium nitrate register with DHS and are screened

by DHS against the Terrorist Screening Database (TSDB);

•

sellers of ammonium nitrate verify purchaser’s identify and registration, keep

records of sales or transfers, and report theft or loss; and

•

DHS audits, inspects, and monitors compliance; develops guidance materials;

establishes an appeals process; and defines the threshold percentage of

ammonium nitrate in a mixture for that mixture to be regulated.

The DHS began its ammonium nitrate rulemaking process with an advanced notice of proposed

rulemaking in October 200830 and, in August 2011, issued a proposed rule regulating ammonium

nitrate possession, sale, and transfer.31

The proposed rule would impose certain conditions on the sale or transfer of ammonium nitrate,

for example, requiring that ammonium nitrate may only be transferred between registered

ammonium nitrate sellers and registered ammonium nitrate purchasers. Each purchaser and seller

would be required to apply to be registered with DHS, which would screen each applicant against

the TSDB.32 Following the screening process, approved individuals would be allowed to engage

in the sale, purchase, or transfer of ammonium nitrate.

Transactions involving the sale or transfer of ammonium nitrate would be regulated at the point of

sale and procedures for reporting a theft or loss of ammonium nitrate would be established.

Ammonium nitrate sellers would be required to sell or transfer ammonium nitrate only to

individuals who had successfully registered with DHS or those individuals’ agents. The proposed

rule would also require those selling ammonium nitrate to retain records for two years and report

theft or loss of ammonium nitrate to federal authorities within 24 hours of discovery. The DHS

would be responsible for ensuring compliance with these proposed standards to ensure public

safety and support legitimate commerce.

This proposed rule received 132 comments, and DHS has not yet issued a final rule. According to

DHS, it continues to adjudicate comments received on the proposed rule issued in August 2011.33

Consequently, no regulation implements DHS’s statutory authority to regulate ammonium nitrate

sale and transfer.

Section 563, P.L. 110-161, Consolidated Appropriations Act, 2008.

73 Federal Register 64280-64282 (October 29, 2008).

76 Federal Register 46907-46957 (August 3, 2011).

The Terrorist Screening Database (TSDB) is a centralized federal database of information about known or suspected

terrorists. For more information, see http://www.fbi.gov/about-us/nsb/tsc/tsc_faqs.

Department of Homeland Security, DHS Responses to Rep. McCaul and Rep. Meehan’s May 2, 2013 Letter

Regarding the Chemical Facility Anti-Terrorism Standards (CFATS) Program, June 2013.

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Regulation by Occupational Safety and Health Administration

The Occupational Safety and Health Administration (OSHA) regulates employers within the

agency’s jurisdiction that use or possess certain quantities of ammonium nitrate at their

worksites.34 Under the “General Duty Clause” of the Occupational Safety and Health Act (P.L.

91-596, as amended), each employer must provide its employees with a workplace that is free

from “recognized hazards that are causing or are likely to cause death or serious physical harm”

to its employees.35 Thus, employers who use or possess ammonium nitrate must, regardless of

any other regulations, ensure that the hazards known to be associated with ammonium nitrate do

not put their employees in danger.

Nearly every workplace covered by OSHA is required to have an emergency action plan (EAP)

that complies with OSHA Standard 1910.38.36 An EAP must have, at minimum, the following

elements:

•

procedures for reporting a fire or other emergency;

•

procedures for evacuation;

•

procedures to be followed by employees who remain to operate parts of the

facilities before evacuating;

•

procedures to account for all employees after evacuation;

•

procedures for employees performing rescue or medical duties; and

•

names and job titles of persons who may be contacted by employees to provide

information to employees about the EAP.37

According to information provided on its EPA Risk Management Plan (RMP), West Fertilizer

Company reportedly had an EAP in place.38

In addition to their general duty and EAP requirements, employers regulated by OSHA must meet

the following occupational safety and health standards that specifically apply to the use and

possession of ammonium nitrate.39

OSHA does not have jurisdiction over public sector employers; employers who are regulated by other federal safety

agencies, such as the Mine Safety and Health Administration (MSHA); and employers in states with approved

occupational safety and health plans. Currently, 20 states and Puerto Rico have their own occupational safety and

health plans that cover the private sector. Under Section 18(c) of the Occupational Safety and Health Act [29 U.S.C.

§667(c)], a state plan must contain regulations “at least as effective” as those enforced by OSHA.

29 U.S.C. §654(a).

29 C.F.R. §1910.38.

29 C.F.R. §1910.38(c).

Right-to-Know Net, Risk Management Plan, http://data.rtknet.org/rmp/rmp.php?facility_id=100000135597&

database=rmp&detail=3&datype=T.

Pursuant to Section 6 of the Occupational Safety and Health Act (29 U.S.C. §655) OSHA may promulgate

occupational safety and health standards through regulation.

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Standard 1910.109: “Explosives and Blasting Agents”40

This standard regulates the storage, use, and transportation of explosives and blasting agents,

including those that may contain ammonium nitrate. The general hazard provision of this standard

states:

No person shall store, handle, or transport explosives or blasting agents when such storage,

handling, and transportation of explosives or blasting agents constitutes an undue hazard to

life.41

In addition, this standard contains specific rules regarding the storage of ammonium nitrate.42

These specific rules include height and spacing requirements for stored ammonium nitrate,

required separation from other materials, and identification of certain building parameters. This

standard applies to all persons storing 1,000 pounds or more of ammonium nitrate, as well as the

owner or lessee of the structure containing the stored ammonium nitrate.43

Finally, the standard also specifies the minimum distances by which blasting agents and

ammonium nitrate must be separated during storage.44

Standard 1910.1200: “Hazard Communication”45

This standard requires that chemicals used in the workplace be properly classified, labeled, and

identified so that their potential safety and health hazards may be communicated to employees.

For example, employers who use substances with recognized safety or health hazards are

generally required to keep material safety data sheets on site and accessible to employees. In

2012, OSHA changed this standard to bring it more in line with the United Nations Globally

Harmonized System of Classification and Labeling of Chemicals (GHS).46 This standard

generally applies to “any chemical which is known to be present in the workplace in such a

manner that employees may be exposed under normal conditions of use or in a foreseeable

emergency.”47

Standard 1910.119: “Process Safety Management of Highly

Hazardous Chemicals”

Section 304 of the Clean Air Act Amendments of 1990 (CAAA) mandated promulgation of the

Process Safety Management (PSM) standard.48 The PSM standard “contains requirements for

preventing or minimizing the consequences of catastrophic releases of toxic, reactive, flammable,

29 C.F.R. §1910.109.

29 C.F.R. §1910.109(b)(1).

29 C.F.R. §1910.109(i).

29 C.F.R. §1910.109(i)(2)(i).

29 C.F.R. §1910.109(g)(4)(vi).

29 C.F.R. §1910.1200.

Department of Labor, Occupational Safety and Health Administration, “Hazard Communication: Final Rule,” 77

Federal Register 17574, (March 26, 2012).

29 C.F.R. §1910.1200(b)(2).

P.L. 101-549.

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or explosive chemicals.”49 Processes involving ammonium nitrate are not subject to regulation

under OSHA’s process safety management of highly hazardous chemicals (PSM) standard, as

ammonium nitrate is not listed as a highly hazardous chemical in Appendix A of the standard.50

Regulation by U.S. Environmental Protection Agency

The U.S. Environmental Protection Agency (EPA) is authorized to regulate production,

distribution, storage, and release of most chemicals in commerce. Among the many

environmental authorities the EPA relies upon, the Emergency Planning and Community Rightto-Know Act (EPCRA) and Section 112(r) of the Clean Air Act directly address the potential risks

from facilities holding chemical hazards.

Emergency Planning and Community Right-to-Know Act

The accidental and sudden release of methyl isocyanate in an industrial accident at the Union

Carbide Plant in December 1984 in Bhopal, India, and the attendant loss of life and injuries

spurred legislative proposals to reduce the risk of chemical accidents in the United States.

Enacted in 1986 as Title III of the Superfund Amendments and Reauthorization Act (SARA; P.L.

99-499), the Emergency Planning and Community Right-to-Know Act (EPCRA) established

requirements and a framework to ensure that the EPA, state and local governments, and the

private sector would work together to control and, if necessary, respond to releases of hazardous

chemicals to the environment. Section 301 of EPCRA established state emergency response

commissions (SERCs) and local emergency planning committees (LEPCs) to develop and

implement local plans for coping with potential releases of hazardous chemicals.

Ammonium nitrate is regulated under two sections of EPCRA, Sections 311 and 312. EPCRA,

Section 311, requires owners or operators of local facilities covered by the Occupational Safety

and Health Act (P.L. 91-596, as amended) to submit a material safety data sheet (MSDS) for each

“hazardous chemical,” or a list of such chemicals, to the SERC, the LEPC, and the local fire

department. An MSDS need only be submitted once, unless there is a significant change in the

information it contains. An MSDS must be provided in response to a request by an LEPC or a

member of the public. The definition of “hazardous chemicals” includes hundreds of chemicals.51

EPCRA Section 311(e)(5) excludes certain substances from this definition, including “fertilizer

held for sale by a retailer to the ultimate customer.”52

29 C.F.R. §1910.119.

29 C.F.R. §1910.119. A similar PSM standard for the construction industry is at 29 C.F.R. §1926.64.

29 C.F.R. 1910.1200(c) defines hazardous chemical to mean “any substance, or mixture of substances” that “is

classified as a physical hazard or a health hazard, a simple asphyxiant, combustible dust, pyrophoric gas, or hazard not

otherwise classified.” “Health hazard means a chemical which is classified as posing one of the following hazardous

effects: acute toxicity (any route of exposure); skin corrosion or irritation; serious eye damage or eye irritation;

respiratory or skin sensitization; germ cell mutagenicity; carcinogenicity; reproductive toxicity; specific target organ

toxicity (single or repeated exposure); or aspiration hazard.” “Physical hazard means a chemical that is classified as

posing one of the following hazardous effects: explosive; flammable (gases, aerosols, liquids, or solids); oxidizer

(liquid, solid or gas); self-reactive; pyrophoric (liquid or solid); self-heating; organic peroxide; corrosive to metal; gas

under pressure; or in contact with water emits flammable gas.”

EPCRA Section 311(e) excepts foods, food additives, or other substances regulated by the Food and Drug

Administration; solids in a manufactured item to the extent exposure to people or the environment does not occur;

substances used for personal or household purposes; substances used in research or hospitals; and substances used in

(continued...)

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EPCRA, Section 312, requires the same employers to submit annually an emergency and

hazardous chemical inventory form to the SERC, LEPC, and local fire department. These forms

must provide estimates of the maximum amount of the chemicals present at the facility at any

time during the preceding year; estimates of the average daily amount of chemicals present; and

the general location of the chemicals in the facility.53 Information must be provided to the public

in response to a written request. EPA is authorized to establish threshold quantities for chemicals

below which facilities are not required to report.

Clean Air Act, Section 112(r)

In 1990, accumulated data on chemical accidents in the United States prompted Congress to

amend Section 112 of the Clean Air Act (CAA) to further address the threat of catastrophic

releases into the ambient air of chemicals that might cause immediate deaths or injuries in

communities. Section 112(r)(7) requires owners and operators of covered facilities that produce,

process, handle, or store certain extremely hazardous substances to submit to the EPA a risk

management plan (RMP) for each process that might have an accidental chemical release. RMPs

summarize the potential threat of unanticipated emissions into the ambient air of certain

dangerous chemicals and facilities’ plans to prevent such releases and mitigate any damage.

Ammonium nitrate is not a chemical regulated under Section 112(r) of the Clean Air Act. The

implementing regulation applies to facilities that possess more than threshold levels of any of 77

acutely toxic substances or 63 flammable gases which the Administrator determined “pose the

greatest risk of causing death, injury, or serious adverse effects to human health or the

environment from accidental releases.” In listing substances, the statute directed the EPA

Administrator to consider “the severity of any acute adverse health effects associated with

accidental releases of the substance,” “the likelihood of accidental releases of the substance,” and

“the potential magnitude of human exposure to accidental releases of the substance.” The law

explicitly excludes fuels held for retail sale from regulation, as it does substances regulated under

other sections of the Clean Air Act. In addition, the EPA Administrator was “authorized to

establish a greater threshold quantity for, or to exempt entirely, any substance that is a nutrient

used in agriculture when held by a farmer.” The EPA Administrator did not include ammonium

nitrate on the RMP chemical list.

Anhydrous Ammonia

Ammonia has a variety of uses, for example, as an agricultural fertilizer and an industrial

refrigerant. It also is used in industrial chemistry to manufacture other nitrogen-containing

chemicals, such as ammonium nitrate, which is made from the reaction of ammonia with nitric

acid. The term “anhydrous ammonia” refers to essentially pure ammonia that exists as a gas. This

contrasts with “aqueous ammonia,” where the ammonia is dissolved in water as a liquid solution.

Many agricultural retailers and facilities with ammonia refrigeration systems store and use

(...continued)

routine agricultural operations.

EPCRA allows facilities to report aggregate amounts of chemicals with similar health and environmental effects.

This is called “Tier I” information. However, chemical-specific information (“Tier II”) must be provided on request

(under certain conditions) to an SERC, LEPC, fire department, or the public.

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anhydrous ammonia. Domestic production of ammonia is approximately 12 million tons,54 and it

is produced worldwide.

In contrast to ammonium nitrate, where the concern is one of potential explosion or theft to

illegally manufacture explosives, anhydrous ammonia is a toxic inhalational hazard. Generally,

anhydrous ammonia is stored as a liquid under pressure; it becomes a toxic gas when released to

the environment. Anhydrous ammonia can harm individuals who inhale or contact it. Thus, it is

regulated to prevent release of the chemical into the atmosphere where it might travel as a cloud

and impact workers and the surrounding environment. It is also encountered routinely in

relatively small quantities by local law enforcement officials and hazardous material response

teams as part of illegal drug synthesis operations (e.g., methamphetamine).

Regulation by Department of Homeland Security

The DHS uses the same authorities to regulate security of facilities possessing anhydrous

ammonia that it uses to regulate those possessing ammonium nitrate: MTSA and CFATS. As

mentioned above, in 2002, Congress enacted MTSA, which authorized the USCG to regulate

security at facilities adjacent to waterways.55 In 2006, Congress authorized DHS to regulate highrisk chemical facilities for security purposes, exempting those facilities already regulated under

MTSA.56

Maritime Transportation Security Act

The MTSA required DHS, through the USCG, to regulate security at facilities located adjacent to

any waters subject to U.S. jurisdiction. Note that this regulatory requirement is irrespective of the

presence of chemicals at the facility, but would capture any facility storing anhydrous ammonia

adjacent to waterways. The USCG implemented MTSA through a series of regulations issued in

October 2003.57 The MTSA requires the creation of an area security plan, assessment of security

vulnerabilities at the facility, and the creation of a facility security plan. The USCG creates the

area security plan. Either the USCG or the regulated facility performs a vulnerability assessment

of the regulated facility. Based on this vulnerability assessment, the facility must develop and

implement a security plan consistent with the broader USCG area maritime transportation

security plan. The facility must update this plan every five years, and the USCG inspects the

facility’s implementation of the plan.58

Chemical Facility Anti-Terrorism Standards

In 2007, DHS issued an interim final rule establishing the Chemical Facility Anti-Terrorism

Standards (CFATS), the regulatory program by which it implements its chemical facility security

authority. The DHS regulates ammonia through the CFATS program. Under the CFATS interim

final rule, the Secretary of Homeland Security determines which chemical facilities must meet

IFDC, North America Fertilizer Capacity, March 2013.

The MTSA also provided additional authorities, including regulating security on vessels.

Section 550, P.L. 109-295, Department of Homeland Security Appropriations Act, 2007.

33 C.F.R. §105.

Vessels have similar requirements to facilities under the MTSA.

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regulatory security requirements, based on the degree of risk posed by each facility. The DHS

lists 322 “chemicals of interest” and screening threshold quantities for each chemical to

determine the need to comply with CFATS.59 The regulation lists two formulations of ammonia

(anhydrous ammonia and aqueous ammonia with a concentration of at least 20%) as chemicals of

interest and identifies release threats for them.

Facilities holding 10,000 pounds or more of anhydrous ammonia or 20,000 pounds or more of

aqueous ammonia with a concentration of at least 20% must submit information to DHS as part of

the “Top-Screen” process. Facilities that DHS deems high risk based on the “Top-Screen”

submission must meet CFATS requirements, which include performing a security vulnerability

assessment, developing a site security plan, implementing the security plan, and then being

inspected by DHS for compliance.

As noted above, the statute exempts several types of facilities from CFATS regulation. The DHS

has implemented a regulatory extension for agricultural chemical users, though not distributors or

retailers.60 As DHS stated in the CFATS interim final rule, “if a retail establishment does exceed

any of these [screening threshold quantities], the retail establishment will have to complete the

Top-Screen.”61

Regulation by Occupational Safety and Health Administration

OSHA regulates employers within its jurisdiction that use or possess certain quantities of

anhydrous ammonia at their worksites. In addition to being subject to the General Duty Clause,

employers regulated by OSHA must meet the following occupational safety and health standards

that specifically apply to the use and possession of anhydrous ammonia.

Standard 1910.111: “Storage and Handling of Anhydrous Ammonia”62

This standard provides comprehensive requirements for the “design, construction, location,

installation, and operation of anhydrous ammonia systems including refrigerated ammonia

storage systems.”63 In addition to basic rules for the storage and handling of anhydrous ammonia

and the operation of anhydrous ammonia systems, this standard provides additional requirements

for different types of refrigerated and non-refrigerated storage systems and containers,

transportation and transfer of anhydrous ammonia, and use of anhydrous ammonia in connection

with farm vehicles such as spraying systems.

72 Federal Register 65396-65435 (November 20, 2007).

See Section 550(a), P.L. 109-295, Department of Homeland Security Appropriations Act, 2007; and 73 Federal

72 Federal Register 17688-17745 (April 9, 2007) at 17697.

29 C.F.R. §1910.111.

29 C.F.R. §1910.111(a)(1)(i).

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Standard 1910.119: “Process Safety Management of Highly

Hazardous Chemicals”64

Section 304 of the Clean Air Act Amendments of 1990 (CAAA) mandated promulgation of the

PSM standard.65 The PSM standard “contains requirements for preventing or minimizing the

consequences of catastrophic releases of toxic, reactive, flammable, or explosive chemicals.”66

The PSM standard covers processes involving anhydrous ammonia. As provided in Appendix A

of the standard, OSHA considers anhydrous ammonia a highly hazardous chemical subject to

standard when it is present in quantities exceeding 10,000 pounds.67 Facilities with sufficient

quantities of anhydrous ammonia must comply with the 14 elements of the process safety

management regulation.

For the purposes of this standard, a process is defined as:

any activity involving a highly hazardous chemical including any use, storage,

manufacturing, handling, or the on-site movement of such chemicals, or combination of

these activities. For purposes of this definition, any group of vessels which are

interconnected and separate vessels which are located such that a highly hazardous chemical

could be involved in a potential release shall be considered a single process.68

Any employer engaging in a process subject to the PSM standard must adhere to requirements

designed to prevent an accidental release of a highly hazardous chemical or mitigate the

consequences of such a release to prevent a catastrophic outcome. The CAAA requires 14

elements to be components of the PSM standard, and these elements generally have been grouped

into the following requirements for employers:

1. develop and maintain written safety information identifying workplace chemical and

process hazards, equipment used in the processes, and technology used in the processes;

2. perform a workplace hazard assessment, including, as appropriate, identification of

potential sources of accidental releases, an identification of any previous release within the

facility which had a likely potential for catastrophic consequences in the workplace,

estimation of workplace effects of a range of releases, estimation of the health and safety

effects of such range on employees;

3. consult with employees and their representatives on the development and conduct of

hazard assessments and the development of chemical accident prevention plans and provide

access to these and other records required under the standard;

4. establish a system to respond to the workplace hazard assessment findings, which shall

address prevention, mitigation, and emergency responses;

5. periodically review the workplace hazard assessment and response system;

29 C.F.R. §1910.119.

P.L. 101-549.

29 C.F.R. §1910.119.

29 C.F.R. §1910.119 Appendix A.

29 C.F.R. §1910.119(b).

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6. develop and implement written operating procedures for the chemical process including

procedures for each operating phase, operating limitations, and safety and health

considerations;

7. provide written safety and operating information to employees and train employees in

operating procedures, emphasizing hazards and safe practices;

8. ensure contractors and contract employees are provided appropriate information and

training;

9. train and educate employees and contractors in emergency response in a manner as

comprehensive and effective as that required by the regulation promulgated pursuant to

Section 126(d) of the Superfund Amendments and Reauthorization Act;

10. establish a quality assurance program to ensure that initial process related equipment,

maintenance materials, and spare parts are fabricated and installed consistent with design

specifications;

11. establish maintenance systems for critical process related equipment including written

procedures, employee training, appropriate inspections, and testing of such equipment to

ensure ongoing mechanical integrity;

12. conduct pre-start-up safety reviews of all newly installed or modified equipment;

13. establish and implement written procedures to manage change to process chemicals,

technology, equipment and facilities; and

14. investigate every incident which results in or could have resulted in a major accident in

the workplace, with any findings to be reviewed by operating personnel and modifications

made if appropriate.69

The PSM standard does not apply to retail facilities. While the standard does not provide a

definition of “retail facility,” OSHA’s interpretation is that the retail facility exemption applies to

any establishment in which more than half of the income it obtains from the sale of highly

hazardous chemicals covered by the PSM standard comes from direct sales to end users.70

According to information provided on its EPA RMP, West Fertilizer Company reportedly was not

covered by this standard.71

Standard 1910.1000: “Air Contaminants”72

This standard provides limits to employee exposure to certain substances. As provided in Table

Z-1 of this standard, the permissible exposure limit (PEL) of an employee to anhydrous ammonia

is:

29 U.S.C. §655 note.

See for example OSHA’s standard interpretation “Clarification of the retail facilities exemption under the PSM

standard,” December 12, 2005, https://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=

INTERPRETATIONS&p_id=25171.

Right-to-Know Net, Risk Management Plan, http://data.rtknet.org/rmp/rmp.php?facility_id=100000135597&

database=rmp&detail=3&datype=T.

29 C.F.R. §1910.1000.

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•

50 parts of vapor or gas per million parts of contaminated air by volume at 25

degrees C and 760 Torr (50 ppm) as measured as an eight-hour time weighted

average (TWA); or

•

35 milligrams of substance per cubic meter of air (35 mg/m3, approximate) as

measured as an eight-hour time TWA.73

Regulation by Environmental Protection Agency

The EPA is authorized to regulate production, distribution, storage, and release of most chemicals

in commerce. Among the many environmental authorities the EPA relies upon, the Emergency

Planning and Community Right-to-Know Act (EPCRA) and Section 112(r) of the Clean Air Act

directly address the potential risks from facilities holding chemical hazards.

Emergency Planning and Community Right-to-Know Act

EPCRA Section 302 directs EPA to list “extremely hazardous substances” (EHS) that are to be the

subject of emergency planning and to establish threshold planning quantities for each substance.

Generally, EPA has included chemicals in this list if they can harm people exposed to them for

only a short period of time. The implementing regulation requires owners or operators of facilities

where an EHS is present at an amount above its threshold planning quantity to notify their SERC,

which then is required to notify the EPA Administrator. Anhydrous ammonia is an EHS with a

threshold planning quantity of 500 pounds.

EPCRA Section 303 requires LEPCs to work with facilities handling EHS to develop response

procedures, evacuation plans, and training programs for people who will be the first to respond in

the event of an accident. Upon request, facility owners and operators are required to provide an

LEPC with any additional information that it finds necessary to develop or implement an

emergency plan.

EPCRA Section 304 requires that facilities immediately report a release of any EHS or any

“hazardous substance” (a much broader category of chemicals defined under the Comprehensive

Environmental Response, Compensation, and Liability Act (CERCLA) Section 102(a)) that

exceeds the reportable quantity to appropriate state, local, and federal officials.74 Releases of a

reportable quantity of a “hazardous substance” also must be reported to the National Response

Center under CERCLA Section 103(a).75 (For more on CERCLA, see CRS Report RL30798,

Environmental Laws: Summaries of Major Statutes Administered by the Environmental Protection

Agency, which includes a summary of CERCLA.) EPCRA Section 304 also would require

reporting of any release above the reporting threshold for anhydrous ammonia.

29 C.F.R. §1910.1000 Table Z-1.

Under CERCLA Section 102(a), a “hazardous substance” includes any “elements, compounds, mixtures, solutions,

and substances which, when released into the environment may present a substantial danger to the public health or

welfare or the environment.” Included in this definition are substances listed under the authority of any of the major

environmental statutes (see CERCLA Section 101(14)).

The term “release” is defined in CERCLA Section 101(22) to exclude a release which results in exposure to persons

solely within a workplace and normal application of fertilizer.

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As noted in the section above for ammonium nitrate, EPCRA Section 311 requires owners or

operators of local facilities regulated by OSHA to submit an MSDS for each “hazardous

chemical,” or a list of such chemicals, to the LEPC, the SERC, and the local fire department. The

OSHA defines “hazardous chemicals,” but EPCRA Section 311(e)(5) excludes “fertilizer held for

sale by a retailer to the ultimate customer” from this definition.

Also as described previously, EPCRA Section 312 requires the same employers to submit

annually an emergency and hazardous chemical inventory form to the LEPC, SERC, and local

fire department. West Fertilizer Company reported their chemical inventory to the state of

Texas.76

Clean Air Act, Section 112(r)

As described above, the CAA Section 112(r)(7) requires owners and operators of covered

facilities that produce, process, handle, or store certain extremely hazardous substances,

including, but not necessarily limited to extremely hazardous substances under EPCRA, to submit

Risk Management Plans (RMPs) to the EPA. RMPs summarize the potential threat of

unanticipated emissions into the ambient air of certain dangerous chemicals and facilities’ plans

to prevent such releases and mitigate any damage. Congress explicitly required planning for

possible releases of anhydrous ammonia.

Policy Issues

As congressional policymakers consider the ramifications of the explosion in West, TX, they may

face several policy issues. These policy issues include the challenges arising from relying on

reporting of chemical inventories by regulated facilities; the potential for omission and

duplication in existing regulatory reporting; the long intervals between inspection at many such

facilities; the ability of federal, state, and local government agencies to share information

effectively among themselves; and public and first-responder access to regulatory information.

Challenges from Reporting by Facilities

Congressional policymakers might consider mechanisms to address the data quality issues arising

from reporting by facilities. Regulatory programs often require facilities to report their chemical

holdings, but such reporting creates the potential for the regulatory agency to be unaware if the

facility does not report. This may be especially true for federal agencies that rely on state or local

implementation of federal requirements. In addition, the quality of such information may be

questioned due to its self-reported nature.77 For example, the Government Accountability Office

has found that DHS does not use self-reported vulnerability assessment information in

determining the security risk at chemical facilities.78

Adair Grain, Inc. DBA West Fertilizer Co., Tier II, Emergency and Hazardous Chemical Inventory, 2012,

http://op.bna.com/env.nsf/id/jsun-96vvcm/$File/Adair%20Grain%20Inc%202012%20Tier%202%20Report.pdf. It is

unclear whether the amounts reported are maximum amounts stored on site or some other value.

The Tier II reporting document filed by West Fertilizer Company, for example, has several internal inconsistencies

regarding its chemical inventory.

Government Accountability Office, Critical Infrastructure Protection: DHS Efforts to Assess Chemical Security Risk

(continued...)

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Lack of Harmonized Reporting

Because different chemicals often have different reporting requirements, regulated entities often

report different information to different regulating agencies. For example, as noted above, DHS,

EPA, and state regulatory agencies receive different information; each chemical may fall under

some, all, or no regulatory requirements due to particular exclusions or exemptions.

Consequently, no central overview of facility chemical holdings exists, and may create the

potential for inefficient regulation.

Inspection Rate

Interested Members of Congress might focus upon the rate of inspection under the various

regulatory programs. Under some federal programs, inspection has not occurred at a pace

expected by policymakers. For example, the DHS stated that it had inspected and approved site

security plan implementation at 166 of 4,298 facilities regulated under CFATS as of July 2013.79

In 2009, the EPA Office of Inspector General reported that EPA had inspected less than half of the

EPA-identified high-risk facilities and less than 35% of all facilities reporting under Section

112(r) of the Clean Air Act.80 Inspection of facilities reporting their chemical holdings may

increase the trustworthiness of supplied information. Also, regular inspection may yield benefits

in enhanced compliance with best practices and regulatory adherence. Of course, increased

inspection relies upon a substantial inspector cadre, which would require additional

appropriations for support. Similarly, delegation of inspection responsibilities for federal

programs to state agencies might reduce the number of discrete inspections but increase the costs

borne by those states. Conversely, additional efficiency might be achieved with a cross-trained

inspectorate that might inspect a facility under all, or most, applicable regulatory regimes.

Ability of Government Agencies to Share Information Effectively

Congressional policymakers have identified information sharing in the homeland security and

intelligence context as a high priority following the events of September 11, 2001. The reported

gap in information between EPA, which knew of the West Fertilizer Company’s existence and its

anhydrous ammonia holdings, and DHS, which did not, indicates a potential gap in information

sharing among federal regulators. Similarly, information possessed by the state of Texas, which

knew of the West Fertilizer Company’s ammonium nitrate holdings, apparently did not reach

DHS. The DHS has detailed some of its information sharing activities, including sharing CFATSregulated facility information with federal, state, and local partners, and is reinvigorating its

coordination with EPA and review of EPA RMP data to identify facilities that may have failed to

submit information under CFATS.81 Increased information sharing may also raise concern among

(...continued)

and Gather Feedback on Facility Outreach Can Be Strengthened, GAO-13-353, April 2013.

Department of Homeland Security, Chemical Facility Anti-Terrorism Standards, July 2013, http://www.dhs.gov/

sites/default/files/publications/CFATS%20Media%20FS_July2013.pdf.

Office of Inspector General, Environmental Protection Agency, EPA Can Improve Implementation of the Risk

Management Program for Airborne Chemical Releases, Report No. 09-P-0092, February 10, 2009, p. 15. See also

Office of Inspector General, Environmental Protection Agency, Improvements Needed in EPA Training and Oversight

for Risk Management Program Inspections, Report No. 13-P-0178, March 21, 2013.

Department of Homeland Security, DHS Responses to Rep. McCaul and Rep. Meehan’s May 2, 2013 Letter

(continued...)

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industry stakeholders regarding the potential for inadvertent release of proprietary information

due to the effects of aggregation and the increased need to transmit such information between

different entities. President Obama issued an executive order on improving chemical facility

safety and security, which would aim to enhance federal agency coordination and information

sharing, among other activities.82

Public Access to Information

Congressional policymakers have long been interested in the balance between providing public

access to information regarding chemical hazards and limiting the potential for malicious use of

such information.83 Reporting under EPA regulation is intended to improve accident planning

through increasing community and first-responder awareness of the potential for release of

hazardous materials. First responders receive some of this information directly and residents of

the surrounding community may obtain access to it. In contrast, DHS restricts information

dissemination regarding security efforts at chemical facilities, partly in order to limit the ability of

malicious actors to use such information for targeting purposes. The extent to which the residents

and first responders of West, TX, knew of the potential hazards may provide insights into this

balance and the effectiveness of community outreach efforts.

Author Contact Information

(name redacted)

Specialist in Science and Technology Policy

[redacted]@crs.loc.gov, 7-....

(name redacted)

Analyst in Disability Policy

[redacted]@crs.loc.gov, 7-....

(name redacted)

Specialist in Environmental Policy

[redacted]@crs.loc.gov, 7-....

(...continued)

Regarding the Chemical Facility Anti-Terrorism Standards (CFATS) Program, June 2013.

Office of Press Secretary, The White House, FACT SHEET: Executive Order on Improving Chemical Facility Safety

and Security, August 1, 2013.

For example, Congress addressed this issue in the context of EPA plans to electronically publish potential

consequence data from RMP submissions by barring such publication (Section 3 of P.L. 106-40, Chemical Safety

Information, Site Security and Fuels Regulatory Relief Act). See also House Committee on Commerce, Subcommittee

on Health and Environment and Subcommittee on Oversight and Investigations, “Internet Posting of Chemical ‘Worst

Case’ Scenarios: A Roadmap for Terrorists,” Serial No. 106-3, February 10, 1999.

Congressional Research Service

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